TEN YEARS OF THE UNIVERSITY QUOTA LAW IN BRAZIL: AN EVALUATION BASED ON INSTITUTIONAL EVASION

Objective: The main objective of the article is to compare the performance of quota and non-quota students at the Federal University of Santa Catarina (UFSC) during the period of the quota policy (Law No. 12.711/2012). The comparison is based on the analysis of enrollment and institutional dropout rates from 2013 to 2022. Theoretical Framework: The theoretical framework discusses the importance of affirmative action policies, specifically university quotas, as tools to democratize access to higher education and promote social inclusion. Various authors are cited who discuss the need for these policies to address historical social, racial, and ethnic discrimination. Law No. 12.711/2012 is contextualized as a milestone in Brazilian higher education, promoting the reservation of places for public school students, considering socioeconomic and racial-ethnic criteria. Method: The study uses a quantitative and descriptive approach, characterized as applied research. Data were collected from the UFSC Academic Control System (CAGR) and institutional documents related to the adherence and application of quota legislation from 2013 to 2022. The data were stratified according to the quotas provided by Brazilian law, and entrants were classified into categories of non-quota and quota students, according to income and ethnicity criteria. Results and Discussion: The results showed the complexity of the phenomenon of institutional dropout, highlighting the differences in the behavior of quota and non-quota groups. The historical series analysis revealed that, despite quota policies, dropout remains a significant issue, especially among quota students. The discussion suggests the need to review the quota legislation, considering the inclusion of other groups and adjusting policies to improve student retention in higher education. Research Implications: The research contributes to understanding the effectiveness of quota policies in Brazilian higher education, offering insights on how these policies can be improved to reduce dropout and promote inclusion. The implications suggest that, in addition to guaranteeing access, it is crucial to implement support measures for quota students to ensure their permanence and academic success. Originality/Value: The article provides a comprehensive and detailed evaluation of the quota policy based on a decade of data, standing out for its quantitative analysis of institutional dropout. The originality of the work lies in the comparison between quota and non-quota students over a significant period, contributing empirical data to the debate on the effectiveness of affirmative action in higher education.


INTRODUCTION
In the 1980s, the promulgation of the Federal Constitution (BRAZIL, 1988) made possible discussions around the democratization of access and stay in universities, with the aim of obtaining fairer conditions of access in Brazilian Higher Education, thus the 1988 constitution symbolized a milestone in the guarantees of social rights regarding knowledge, promoting the expansion of scientific knowledge (DUTRA; SANTOS, 2017).
However, according to Marcelino and Gonçalves (2021, p. 2) "democratization is only consolidated, from the moment that it contemplates diversity, expanding the opportunities for access and permanence those who, historically, have this access denied".Therefore, public policies are needed to alleviate the social inequality present in Brazil.
Affirmative action policies aim to repair the social, racial and ethnic discrimination accumulated over the years, providing representation to minority groups and therefore have a temporary and reparatory nature, as they will cease when the goals are reached (DÁRIO, 2017).
According to Guarnieri and Melo-Silva (2007, p. 70) "Affirmative Actions can be understood as measures of a social nature that aim to democratize access to fundamental means -such as employment and education -by the population in general".Providing a level playing 4 field for minority groups and thus enabling social inclusion, with the aim of remedying the social, racial and ethnic discrimination accumulated over the years (MARCELINO; GONÇALVES, 2021) The quota system for admission to federal universities was made mandatory in 2012 by Law No. 12.711/2012, which requires that in each selection process for entry, by course and shift, at least 50% (fifty percent) of its vacancies are reserved for students who have fully attended high school in public schools, considering also the conditions of per capita income equal to or less than 1,5 minimum wage and the ethnic-racial conditions (BRAZIL, 2012).
Public policies in higher education seek equality of opportunity among students, seeking to reduce situations of evasion and disapproval.Thus, according to Lima and Ferreira (2016, p.117) " [...] the evaluation of social policies and programs becomes relevant for government planning and management".It should also be noted that the law on quotas provides for a review ten years after its entry into force, in order to evaluate the permanence of socioeconomic and ethnic-racial inequality in higher education.BRAZIL, 2012 In the light of the above, and considering the need for the evaluation of public policies in higher education, the work seeks to evaluate the performance of quota students and of wide competition at the Federal University of Santa Catarina (UFSC) during the term of the quota policy (Law No. 12.711/2012).There is thus concern in comparing the performance of students entering the period 2013 to 2022, classifying the form of entry and describing the evasion.

AFFIRMATIVE ACTIONS
To understand the term affirmative action, it is necessary to analyze the concepts established by the authors.For Guarnieri and Melo-Silva (2007, p. 70): Affirmative Actions can be understood as social measures aimed at democratizing access to fundamental means -such as employment and education -for the population at large.The main objective of these measures is to promote conditions so that everyone in society can compete equally for the achievement of such means.For Feres Júnior et al. (2018, p.2) affirmative action is: [...] any program, public or private, which has the objective of conferring resources or special rights on members of a disadvantaged social group, with a view to a collective good.Ethnicity, race, class, occupation, gender, religion, and caste are the most common categories in such policies.Resources and opportunities distributed by affirmative action include political participation, access to education, admission to higher education institutions, health services, employment, business opportunities, material goods, social protection networks, and cultural and historical recognition.
In the Education for All Collection, launched by the Ministry of Education and the United Nations Educational, Scientific and Cultural Organization (UNESCO), it conceptualizes the term as: [...] special and temporary measures that, seeking to remedy a discriminatory past, aim to speed up the process of equality, with the reach of substantive equality on the part of vulnerable groups, such as ethnic and racial minorities, women, among other groups.(SANTOS, 2007, p. 40) In the light of the above, affirmative action policy has a social nature since it proposes to popularize the reach of part of the population to fundamental means such as education, politics, health and work, ensuring social inclusion and seeking to repair social, ethnic and racial gaps present in society (GUARNIERI; MELO-SILVA, 2007).
They are therefore temporary and compensatory measures, since they seek to speed up the process of equality of vulnerable groups and will cease when the objectives are achieved, with the aim of "remedying historical disadvantages by alleviating the discriminatory past suffered by this social group" (SANTOS, 2007, p. 41).
According to Godoi and Santos (2021), the discussion on quotas in higher education in Brazil started with the Bill n. 3.627/20043.627/ (BRAZIL, 2004)), which reserved 50% of the places in public institutions of higher education to students who had graduated from public schools, filled by a minimum portion of "self-declared blacks and indigenous people equal to the proportion of blacks, mulattoes and indigenous people in the population of the Federation unit where the institution is installed, according to the last census of the Brazilian Institute of Geography and Statistics Foundation -IBGE" (BRAZIL, 2004).
The bill establishes a reserve for students who have attended high school in public schools and especially for black and indigenous people in federal public higher education institutions.The ethnic prioritization of these peoples is based on the justification that vacancies are not filled by blacks and members of indigenous communities because of the circumstantial insufficiencies of these groups.(GUARNIERI; MELO-SILVA, 2007, p. (OJ L 146, 11.4.2003, p. 3.627/2004(BRAZIL, 2004) had as its purpose "to insert ethnic-racial underscores in the more general

LAW NO 1049/2001 12.711/2012 AND ACCESS TO PUBLIC HIGHER EDUCATION
The policy of quotas in higher education in Brazil was consolidated nationally with the approval of Law No. 12.711/2012(BRAZIL, 2012).Although it is referred to as the law of racial quotas in the university, the reservation of vacancies does not occur strictly, purely or primarily, by ethnic-racial criteria, but rather, a priori, by socioeconomic criteria (candidate who has fully attended high school in public school) and later racial factors (GODOI; SANTOS,

2021).
It should be noted that the inclusion of the reserve of vacancies for people with disabilities occurred only from December 28, 2016, through Law No. 13.409/2016, which "Amends Law No. 12.711 of August 29, 2012 to provide for the reservation of vacancies for persons with disabilities in the technical courses of high and tertiary level of the federal educational institutions" (BRAZIL, 2016).
The quota law establishes that federal institutions of higher education must determine at least 50% of their places in each selection process, by course and shift, for students who have fully attended high school in public schools (BRAZIL, 2012).In addition, 50% of these places should be reserved for "students whose family has a per capita income equal to or less than 1.5 minimum wages; the other 50% of the places are reserved for students whose family has a per capita income above that limit" (GODOI; SANTOS, 2021, p. 13).
It is added that the vacancies of each HEI for students who have completed high school in public schools must be: [...] filled, by course and shift, by self-declared blacks, mulattoes and indigenous and by persons with disabilities, according to the legislation, in proportion to the total vacancies at least equal to the respective proportion of blacks, mulattoes, indigenous and persons with disabilities in the population of the unit of the Federation where the institution is installed, according to the latest census of the Brazilian Institute of Geography and Statistics Foundation -IBGE.(BRAZIL, 2012, Art. 3) According to Godoi and Santos (2021), affirmative action policies are temporary and temporary, and for Dário (2017) they will end when the objective of repairing the social, racial and ethnic discrimination accumulated over the years is achieved, ensuring representativeness of vulnerable groups.
In the light of this, the federal legislature imposed, within ten years of the law, that: [...] the review of the special program for access to higher education institutions for black, mixed and indigenous students and people with disabilities, as well as those who have fully attended high school in public schools, will be promoted.(BRAZIL, 2012, Art.7)

CIRCUMVENTION IN HIGHER EDUCATION
The expansion of Brazilian higher education occurs through the creation of government programs that aim to meet Law No. 13.005, of June 25, 2014, of decennial duration, establishing the educational goals of the National Education Plan (PNE), among the goals for higher education stands out: [...] raise the gross enrollment rate in higher education to 50% (fifty percent) and the net rate to 33% (thirty-three percent) of the population from 18 (eighteen) to 24 (twentyfour) years, ensured the quality of the supply and expansion to at least 40% (forty percent) of the new enrollments, in the public segment.(BRAZIL, 2014, n.p)According to Lima and Zago (2018), to achieve the goals set in the PNE the government has been implementing consecutive public policies aimed at expanding access to higher education, such as The respective public policies have contributed in a relevant way to the expansion of access to higher education, since according to the National Institute of Educational Studies and Research Anísio Teixeira (INEP), in Brazil, "the number of entrants, part of a total of 2,346,695, in 2011, and reaches the number of 3,765,475, in 2020 (60.5% growth  It should be noted that government programs propose not only the expansion of access, but the permanence in higher education, seeking to combat evasion and disapproval (DÁRIO, 2017).
In Brazil, according to INEP (2021), presented in Figure 1, "at the end of ten years of follow-up, 40% of the participants in 2011 complete their entry course, 59% give up and 1% remain in it" (INEP, 2021, p. 46).Therefore, for Lima and Zago (2018, p. 368) "Although more students enter the university environment annually, we find that there is a historical dissonance between access and completion [...]".Thus, it appears that the circumvention of HEIs is a relevant issue at present.Student evasion in higher education occurs for different reasons, which makes the topic extremely complex to study, among the deadlocks is the theoretical definition, since there is no consensus among researchers about the concept of evasion (LIMA; ZAGO, 2018).
According to Walter (2016), evasion is conceptualized as the abandonment of students who enrolled in the courses and did not meet all the necessary requirements to complete the courses within the prescribed time frame.Thus, for Walter (2016) the definition of evasion includes jubilee students, in situations of abandonment, and those who drop out, since the main purpose has not been achieved, which in this case is the completion of the course.
According to Scremin (2008, p. 65) student evasion can be understood as " [...] the departure of the student from the institution, or one of its courses, temporarily or definitively, for any reason other than graduation".Therefore, it determines that the student's temporary evasion occurs through formal course locking and definitive evasion can happen through: Abandonment: when the student does not attend enrollment and does not require locking; Withdrawal: is the termination of the course in which the student is enrolled, upon formal request; External transfer: when the student is disconnected from the institution, upon formal request, for the purpose of joining another institution.(SCREMIN, 2008, p. 66) In view of this, it is essential to differentiate and understand the concepts of abandonment and evasion: Abandonment occurs when the student interrupts the studies during the school year and resumes them in the following year.It is therefore different from evasion, which is characterized when the student stops studying.The official statics classify as evasion the two situations (abandonment and evasion), since they are calculated from the difference between the number of registrations at the beginning and at the end of the year.(ABRAMOVAY; CASTRO, 2003, p. 529) In Brazil, the studies on evasion strengthened from 1995 onwards, when the Secretariat of Higher Education of the Ministry of Education and Sport (SESu/MEC) instituted the Special Commission for the Study of Evasion, with one of the objetives "to clarify the concept of evasion, considering its concrete dimensions: the evasion of course, institution and higher education" (BRAZIL, 1996, p. 7).
The Special Commission of Studies on Avoidance in Brazilian Public Universities defined evasion of undergraduate courses as "the definitive exit of the student from his original course, without concluding it" (BRAZIL, 1996, p. 15).However, for Lima and Zago (2018) this point of view does not portray the phenomenon of evasion in all scenarios, so that the departure of the student can occur from the perspective of the course, institution and educational system.
In view of this, the commission responsible for studying the evasion in Brazilian Higher Education, conceptualized the evasion in three levels or modalities: course avoidance: when the student disconnects from the higher education program in various situations such as: dropping out (no longer enrolling), dropping out (official), transfer or reinstatement (change of course), exclusion by institutional norm; evasion of the institution: when the student leaves the institution in which he is registered; evasion of the system: the extent to which a student leaves university education permanently or temporarily.(BRAZIL, 1996, p. 16)

METHODOLOGICAL ASPECTSOR
This work can be considered as an applied research, which aims "to generate knowledge for practical application, aimed at solving specific problems" (GERHARDT; SILVEIRA, 2009, p. 35) and of a descriptive nature, because it intends to describe the particularities of a given population or, then, to determine a relationship between variables (GIL, 2007).
Regarding the means, it is a case study, with collection in the database of the Academic Control System of the institution (CAGR) and access to documents referring to the accession and application of legislation in the period 2013 to 2022.
Taking into account the period under analysis and the legislation, the mode of entry presented by the institution is presented in Table 1.Thus, students of the general classification will be the only form of non-quota admission, called broad competition.

Table 1
Classification of the ingress shape against the quota policy.

Entry Form
Grouping category Overall rating Broad competition Income above 1.5 Minimum Wages -PPI (Black, Brown and Indigenous) Quota student Income above 1.5 Minimum Wages -Other Income up to 1.5 Minimum Wage -PPI (Black, Brown and Indigenous) Income up to 1.5 Minimum Wage -Other Source: Prepared by the authors, 2023.
The study population was composed of students of the institution's in-person undergraduate courses, who entered through entrance exam in the period 2013 and 2022.The limitation in the analysis period is due to the provisions of Law No 1009/2001.12.711, of August 29, 2012 (BRAZIL, 2012), which made the adoption of effective quotas mandatory for university entrants as of 2013.
In relation to the geographical scope of the research, the population of the five campuses of the Federal University of Santa Catarina (UFSC), distributed over the cities of Araranguá, Blumenau, Curitibanos, Florianópolis and Joinville was taken into consideration.Thus, to evaluate the application of the legislation it was necessary to standardize some information.Therefore, it was not considered the inclusion of the reserve of vacancies for persons with disabilities that occurred from December 28, 2016, through Law No. 13.409, which "Amends Law No. 12.711, of August 29, 2012, to provide for the reservation of vacancies for persons with disabilities in the technical courses of high and higher level of the federal educational institutions" (BRASIL, 2016).The courses offered in the distance mode (EaD) were also not taken into consideration, since there is no regularity in the offer with annual entrance exams.
As regards the academic situation, the data provided by the CAGR separate the students into the following categories: jubilee, transferred, abandonment, dropout, deceased, eliminated, exchange of course, locked, regular and trained.
According to Table 2, the student's withdrawal from attending the institution is adopted as an evasion, whether through withdrawal, abandonment, transfer or retirement.That is, any other factor that brings about the student leaving the institution, except for graduation, is being characterized as evasion, whether temporary or definitive.

Table 2
Categories of grouping of academic situations.In the analysis of the collection, the aim was to measure the information obtained from the CAGR.According to Gressler (2003, p. 183) "after collection, data must be presented in an objective, accurate, clear and logically interconnected manner.They may be drawn up and classified systematically".Therefore, the collected data was selected, encoded and tabulated.
The primary data collected in CAGR has been manipulated into spreadsheets in the software Excel, to facilitate interpretation by using charts and statistical techniques.

RESULTS
Through the collection of data from CAGR, the information related to entry and institutional evasion of students from the Federal University of Santa Catarina was analyzed.Entrants through the university entrance exam are divided according to the quota policy (Law 12.711/2012), that is, wide competition and quota students.Thus, Figure 2 shows the percentage variation of enrollments in such categories.Percentage of quota students and broad competition enrolled.
Source: Prepared by the authors, 2023.
According to Figure 2, from the implementation of Law 12.711/2012 (BRAZIL,2012), there is a percentage increase in the number of quota students registered during the ten years of the legislation, starting 20% (2013) and reaching 32% (2022).
The legislation divides quota students, a priori, by socio-economic criteria and then by racial factors.Thus, Figure 3 shows the entry of students in each of the sub-quotas, allowing to verify the profile of the participants in the institution.

Figure 3
Percentage of quota students enrolled by subquota.

Discentes matriculados
It is possible to observe in Figure 3 that there is an increase of entrants in the quotas that consider black, brown or indigenous (PPI), being that in 2013 represented a percentage of 10% of the enrolled, increasing to 26% in 2022 However only 11% of PPI students present with income per capita equal or lower than 1.5 minimum wage.
It should be added that, according to Figure 3, there was a reduction of enrollees with per capita income equal to or less than 1.5 minimum wage, since in the implementation of the quota policy corresponded to 52% and after ten years of the law of university quotas reflect 39% of the entrants.

ANALYSIS OF INSTITUTIONAL CIRCUMVENTION
The data collected from the CAGR analyzed the accumulated institutional evasion index between 2013 and 2022.Figure 4 shows the percentage of students who evaded in relation to the year of entry.It is observed in figure 4 that the accumulated rate of circumvention of the institution's in-person undergraduate courses is significant and represents approximately half of the participants each year.It is also possible to observe that the dropout is lower for entrants from

Figure 5
Percentage of students evaded by grouping category.
Source: Prepared by the authors, 2023.
In Figure 6, the moving average of the last three periods was calculated for the quota categories and broad competition, with the intention of comparing the circumvention of the two groups and identifying some trend over time.Ampla concorrência 81% 77% 74% 55% 56% 65% 65% 66% 64% 71%

Figure 6
Moving Average of students evaded by grouping category.
Source: Prepared by the authors, 2023.
Faced with the problem of evasion, figure 7 shows how the phenomenon is distributed amongst quota students.

Figure 7
Percentage of students evaded by subquota.It is observed in Figure 7, that evasion is present in a significant way for public school students with per capita income higher than 1.5 minimum wages other than PPI, with cumulative average of 41%.In addition, the public school sub-quota with per capita income above 1.5 minimum wages for PPI shows an increase of fourteen percentage points, being the largest addition of historical series evasion.
In Figure 7, the public school sub-quota with per capita income equal to or less than 1.5 minimum wages other than PPI indicates a reduction of twenty-one percentage points, the most significant reduction, but it occurs gradually.
Finally, it can be seen that the racial underscores show an increase of sixteen percentage points, since the students enrolled in 2013 represent an accumulated dropout rate of 12% and in 2022 already correspond to 28%, and this number can still increase due to the average integralization period of the courses.

FINAL CONSIDERATIONS
Through the data collected, enrollment in undergraduate courses was reduced from 2020, the year the COVID-19 pandemic began, a situation that continues at the university even after the end of the global health crisis.However, the relationship between the participants of broad competition and quota student remains relatively constant in recent years, and is not in principle a positive information since quota students correspond only to 1/3 of the students enrolled each year in the institution.
According to Law No. 12.711/2012 (BRAZIL, 2012) the sub-quotas are divided according to per capita income and racial factors, and through the historical series surveyed we noticed an increase in the last ten years of sixteen percentage points of entrants in the quotas they consider black, brown or indigenous (PPI), however the percentage is not yet significant, therefore, one must think of quotas a priori by ethnic-racial issues with the aim of repairing the social, racial and ethnic discrimination accumulated over the years, providing minority groups.
However, it is worth noting that in 2022 only 11% of PPI students had per capita income equal to or less than 1.5 minimum wage, reflecting only an increase of five percentage points after the application of the quota legislation, in addition, a reduction of thirteen percentage points of the enrolled students with per capita income equal to or less than 1.5 minimum wage after the ten years of the law of university quotas, since in the implementation of the policy of reservation of vacancies corresponded to 52% and in 2022 reflect only 39% of the entrants.
Therefore, it is necessary to maintain in this way the socio-economic criteria due also to the indispensability of representing this profile of student.
Another aspect contemplated in the research was the institution's accumulated level of evasion, which covers practically 50% of the pupils registered in each year, with the major part of the evaders corresponding to those with wide competition, and that 29% portrays the quota students.Even so, it should be emphasized that the accumulated dropout rate for quota students increased by ten percentage points in the course of the historical series presented and that the percentage of participants in the respective category remained constant.Thus, it is noticeable the reduction in the number of graduates related to each year of entry.
Furthermore, the study pointed out that the phenomenon of circumvention is present in a significant way for public school students with per capita income higher than 1.5 minimum wages other than PPI, since in the historical series it presents an accumulated average of 41%.
In addition, the public school sub-quota with per capita income above 1.5 minimum wages for PPI shows an increase of fourteen percentage points, being the largest addition of historical series evasion.
In short, there is still need to maintain the current reserves of vacancies present in law nº 12.711/2012 (BRAZIL, 2012).However, it is necessary to review the policy regarding quotas by ethno-racial criteria and the policies of monitoring evasion, in order to make it possible for students to enter and remain, making possible academic training that combats the social, economic and racial inequality present in the population.
70) Draft Law No 1/2003 of the European Parliament and of the Council of 14 December 2003 establishing a European Police College (CEPOL) ) and was approved by the National Congress in 2012.Thus, the adoption of Law No 1049/2001 12.711, of August 29, 2012, characterized a historical landmark for Brazil in relation to affirmative actions because, although not unprecedented, the law promoted the unification of the criteria and made compulsory the implementation of the quota policy in public higher education (GODOI; SANTOS, 2021).
University for All Program (Prouni), conceived in 2005; • Program for the Support of Restructuring and Expansion Plans of Federal Universities (REUNI), designed in 2007; • Unified Selection System (SiSU), designed in 2010; • National Student Assistance Program (PNAES), designed in 2010; and • Quota Law, created in 2012.
by the authors, 2023.

Ten 1
figure 1 Number of students enrolled in the historical series from 2013 to 2022.

Figure 4
Figure 4Academic status students entering between 2013 and 2022.
most students are still within the minimum periods of average integralization of the courses that corresponds to 4.0 years for the undergraduate and 4.6 years for the bachelor (INEP, 2021).

Figure 5
Figure 5 is intended to understand the representativeness of each grouping category within the institution's accumulated circumvention.The largest period of dropout for quota students is in the 2016 and 2017 entrants, which represent 45% and 44% respectively.It is also added that the historical series shows the increase in evasion from 19% in 2013 to 29% in 2022.
Ten Years of The University Quota Law in Brazil: An Evaluation Based on Institutional Evasion The University Quota Law in Brazil: An Evaluation Based on Institutional Evasion ___________________________________________________________________________ Rev. Gest.Soc.Ambient.| Miami | v.18.n.8 | p.1-21 | e08313 | 2024.