EVOLUÇÃO DO FUNCIONALISMO PÚBLICO NO BRASIL E NO MUNDO

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O presente estudo tem o objetivo de lançar elementos para um debate imparcial sobre a quantidade de servidores públicos no Brasil. Esse debate sobre a eficiência do Estado brasileiro e até acerca da quantidade ou proporção de servidores públicos em relação à população empregada, é sempre trazido à baila, em artigos os mais diversos.

Na realidade, temos que salientar que muitas das recentes publicações que eventualmente apontam para um inchaço do setor público, trazem argumentos rasos e sem qualquer base de dados mais específicos.

A superficialidade de algumas publicações fica ainda mais evidente quando se verifica que os supostos estudos não distinguem quaisquer das esferas, Poderes ou carreiras. Ou seja, essa generalização tende a induzir o leitor, principalmente o desatento a erro, tendente a concordar que “há servidores demais” no Brasil e que a solução passaria por uma redução do tamanho do Estado, o que é uma conclusão enviesada.

A primeira parte das análises será fundamentada nos relatórios disponibilizados pela Organização para a Cooperação e Desenvolvimento Econômico OCDE, denominados Government at a Glance 2019 e Government at a Glance Latin America and the Caribbean 2020.

Os dados dos gráficos disponibilizados pela OCDE, deverão servir de base a uma análise acerca do percentual de servidores públicos em relação à população total empregada, bem como da taxa de crescimento anual desse quantitativo. O gráfico a seguir reproduzido foi elaborado pela OCDE, inserido no relatório Government at a Glance 2019 representa o percentual médio de servidores públicos em relação ao número total de empregados, nas Economias que elenca:

No gráfico acima, a média de servidores públicos em relação à população empregada, calculada pela OCDE, é de 17.88%[1] (em vermelho). Na “liderança” vem a Suécia, com 30.26%. É claro que os argumentos que distanciam o Brasil de uma análise com a nação escandinava são muitos, como a população, área, IDH, dentre tantos outros.

Contudo, os EUA figuram bem próximos à média da OCDE, com 15.89%. O Japão, por sua vez, é o país com a menor quantidade de empregados públicos, com apenas 6.09% em relação à população total empregada. Nesse mesmo estudo, a OCDE não consolidou os dados do Brasil. Para comparar os dados acima com o Brasil, foi necessário usar dados de um outro estudo publicado em 2020, a seguir demonstrado.

Em outra análise, a OCDE dimensiona a taxa de crescimento de empregados no serviço público, conforme se depreende pelo gráfico a seguir reproduzido:

No gráfico acima, onde a OCDE demonstra a taxa de crescimento anual de emprego no setor público, observa-se que a média dos países da OCDE é de 0.62%, indicada em vermelho. Com 3.56% de crescimento na série, a Irlanda lidera esse quadro comparativo. Novamente os EUA figuram bem
próximos à média, com 0.66% de crescimento anual. O Japão revelou evolução de 0.38%, enquanto o mesmo quadro revela uma série de países onde ocorreu uma involução, na qual a Estônia parece liderar, com – 5.55%.

Para realizar uma comparação desses indicadores com a realidade brasileira, usando os relatórios da OCDE, é necessário lançar mão de um outro relatório: Government at a Glance Latin America and the Caribbean 2020, onde os parâmetros da média de servidores públicos em relação à população empregada são compilados no gráfico a seguir reproduzido:

O Brasil figura, conforme aponta a OCDE com uma taxa de 12.5% de servidores públicos em relação à população empregada. Fica demonstrado que o Brasil está muito abaixo da média da OCDE para esse indicador, que é para esse mesmo período, já de 22.0%. O Brasil está praticamente na média do indicador para a América Latina + Caribe, que é de 12.3%.[2]

E em relação à taxa anual de crescimento de empregados no serviço público, o Brasil está na seguinte condição, conforme gráfico da OCDE abaixo reproduzido:

Quando o indicador comparado é a taxa anual de crescimento dos servidores públicos, o Brasil figura com uma performance de 0.3%, que é a metade da média da OCDE para o período, de 0.6%. O Brasil também está muito aquém da média para a América Latina + Caribe, que é de 1.4%.

Ao considerarmos os dois gráficos dos estudos da OCDE, relativamente à média dos empregados públicos em relação à população total empregada, considerando o Brasil inserido, temos a seguinte realidade:

As colunas “OCDE” e “LAT/CAR” correspondem, respectivamente, à média dos países da OCDE e à média dos países da America Latina e Caribe. Observa-se que o Brasil, com 12.5%, está bem abaixo da média da OCDE, que no relatório Government at a Glance Latin America and the Caribbean 2020 já batia os 22%. Já em comparação com os seus vizinhos da America Latina e Caribe, que estão com 12.3%, a realidade brasileira se mostra tecnicamente empatada, com 12.5%.

É interessante a comparação do percentual de servidores públicos do Brasil com os EUA, tendo em vista que é um país sempre apontado como exemplo de liberalismo e de Estado mínimo. E o que os números da OCDE revelam é que, nos Estados Unidos, há mais servidores (15.89%) –
proporcionalmente – do que no Brasil (12.50%.).

Quando se realiza a compilação dos dados relacionados à taxa de crescimento do número de servidores, o resultado resumindo apenas o país com a maior taxa, que é a Irlanda, com 3.56%; a média da OCDE, com 0.62%; a média dos EUA, que foi de 0.66% no período; a média da América Latina e Caribe, que foi de 1.4% e o Brasil, que apresentou a mais baixa taxa, de 0.3%.

O exame dos relatórios e gráficos indicados apontam para a conclusão de que a eventual alegação de que o Brasil tem um excesso de servidores públicos não se sustenta. Ao analisarmos os quadros da Organização para a Cooperação e Desenvolvimento Econômico – OCDE, fica patente que o Brasil está abaixo dos indicadores médios em termos globais. Já em comparação com os países LATAM + Caribe, o Brasil crava seu indicador tecnicamente na média.

A segunda parte do estudo tem como base o estudo divulgado pelo Banco Mundial sob o título “GESTÃO DE PESSOAS E FOLHA DE PAGAMENTOS NO SETOR PÚBLICO BRASILEIRO – O QUE OS DADOS DIZEM?”.

Nesse relatório, o organismo internacional realiza um levantamento/diagnóstico de dados de servidores em nível federal e estadual, limitado às despesas com pessoal civil dos poderes executivos federal e estaduais.

Ao examinar as despesas com pessoal do governo federal, no período compreendido entre 1997 e 2018, a conclusão do referido estudo do Banco Mundial foi de que essas “se mantiveram relativamente estáveis como proporção do PIB e cresceram 3,7% a.a. em termos reais. Nesse período, a razão dessas despesas pelo PIB teve média de 4,31%, atingiu valor máximo em 2000 (4,8%) e mínimo em 2013 (3,8%).”[3]

A Figura 3 disponibilizada na página 23 do referido relatório revela:

O mesmo estudo apresenta uma outra figura (8) na página 25, onde se evidencia – em nível de poder executivo federal – que desde 2016, há uma redução no gasto com pessoal ativo, que cai de 131.6 em 2016 para 125.9 em 2018. O indicador remuneração média também cai, de 119.0 em 2016 para 114 em 2018. A linha indicativa da quantidade de servidores também aponta para uma redução no período, de 110.9 para 110.5.

Ao analisar a mesma realidade no âmbito dos governos estaduais, o relatório do Banco Mundial exibe a figura de 37 na página 54, onde também resta evidenciado – em nível de poder executivo estadual – que a partir de 2014, também se evidencia redução no gasto com pessoal ativo. O indicador “Folha em termos reais” cai de 198 para 179. O indicador “Salário médio” cai de 182 para 178. E o indicador “Número de vínculos” cai do patamar de 109 para 100.

É o que se observa a partir da leitura da figura abaixo:

CONCLUSÃO

Os resultados compilados a partir dos estudos desenvolvidos pela OCDE e pelo Banco Mundial apontam para uma realidade de uma força de trabalho – em termos de número – compatível com a realidade brasileira. O Brasil possui um percentual de servidores públicos em relação à população empregada bem abaixo da média da OCDE. O Brasil se posiciona – nesse quesito – também abaixo de países tidos como liberais, como é o caso dos EUA.

A taxa média de crescimento do Brasil também é inferior à média da OCDE; inferior à de países desenvolvidos, especialmente a revelada pelos Estados Unidos e até inferior à média da America Latina e Caribe.

Para download, clique aqui.

Referências   [ + ]

[1] OECD (2019), Government at a Glance 2019, OECD Publishing, Paris.
Disponível em: https://doi.org/10.1787/8ccf5c38-en
Acesso em: 31/05/2020
[2] OECD (2020), Government at a Glance: Latin America and the Caribbean 2020, OECD Publishing, Paris.
Disponível em: https://doi.org/10.1787/13130fbb-en
Acesso em: 31/05/2020
[3] Banco Mundial. GESTÃO DE PESSOAS E FOLHA DE PAGAMENTOS NO SETOR PÚBLICO BRASILEIRO – O QUE OS DADOS DIZEM?
Disponível em: http://documents.worldbank.org/curated/en/449951570645821631/Gest%C3%A3o-dePessoas-e-Folha-de-Pagamentos-no-Setor-P%C3%BAblico-Brasileiro-o-Que-Os-Dados-Dizem
Acesso em: 31/05/2020

Autor

Juracy Soares

Juracy Soares

Juracy Soares é auditor fiscal do Estado do Ceará, diretor de Estudo Tributários da Federação Brasileira de Associações de Fiscais de Tributos Estaduais (Febrafite) e diretor executivo da Associação dos Auditores Fiscais da Receita Estadual e dos Fiscais do Tesouro Estadual do Estado do Ceará (Auditece). É graduado em Contabilidade pela UFC, mestrado em Controladoria e doutorado em Direito, pela UMSA-AR.

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