Núcleo político quer dar ao Congresso, via portaria, direito de impor destino das emendas de relator; Ministério da Economia é contra
Idiana Tomazelli e Breno Pires, O Estado de S.Paulo
BRASÍLIA – A ala política do governo quer incluir em uma portaria interministerial uma permissão para repassar formalmente ao Congresso o direito de impor neste ano o destino de emenda de relator, o que atualmente não é permitido pela lei orçamentária. Seria uma forma de “regularizar” o esquema do orçamento secreto, revelado pelo Estadão, depois de as indicações bilionárias feitas no Orçamento de 2020 entrarem na mira do Tribunal de Contas da União (TCU).
A medida, porém, enfrenta resistências dentro do Ministério da Economia, uma vez que não há qualquer lei ou trecho da Constituição que imponha a indicação dos congressistas para o uso desses recursos. Essa previsão só existe para outros tipos de emenda, individuais e de bancada, que todo ano têm valor definido e distribuição igualitária entre parlamentares governistas e de oposição. Técnicos ouvidos pela reportagem veem falta de base jurídica para uma regulamentação que “legitime” o direcionamento do destino das emendas de relator pelo Legislativo.
No Orçamento de 2020, o governo ignorou esse entendimento da Economia. O Ministério Público junto ao TCU pediu abertura de investigação para apurar eventual crime de responsabilidade do presidente da República por causa disso.
Segundo apurou a reportagem, a negociação vem sendo conduzida pela Casa Civil, chefiada pelo ministro Luiz Eduardo Ramos, embora a portaria seja de competência da Secretaria de Governo, da ministra Flávia Arruda, e da Economia. O prazo para regulamentar a execução das emendas termina na primeira semana de junho, daí a pressa nas articulações. Há também pressão da base aliada do governo para que as regras sejam publicadas logo para destravar o uso do dinheiro, que até agora não pôde ser utilizado.
Para tentar driblar as resistências na área econômica, a ala política tenta emplacar um dispositivo “não taxativo”, isto é, opcional. Segundo fontes que acompanham as discussões, a redação estipularia que o ministério beneficiário dos recursos poderá solicitar ao relator-geral a indicação da localidade em que a verba deve ser aplicada. Assim, a decisão de pedir ou não o endereço final da dotação ficaria, em tese, com o chefe da pasta, transmitindo a ideia de que o Executivo segue no controle do uso dos recursos.
O Orçamento de 2021 tem hoje R$ 18,5 bilhões destinados às emendas de relator – valor que pode cair a R$ 17,2 bilhões, caso o Congresso aprove um corte proposto por Bolsonaro para conseguir remanejar recursos e socorrer ministérios (mais informações nesta página). Antes dessa redução, os maiores beneficiários das emendas de relator são os ministérios da Saúde (R$ 7,8 bilhões), do Desenvolvimento Regional (R$ 6 bilhões), da Agricultura (R$ 1,7 bilhão), da Cidadania (R$ 1,1 bilhão) e da Educação (R$ 1 bilhão), segundo dados da Instituição Fiscal Independente (IFI) do Senado.
Esquema
O orçamento secreto é um esquema montado pelo governo Bolsonaro em 2020 para ganhar apoio político no Congresso. Um grupo de deputados e senadores fechou acordo com o governo para escolher, naquele ano, o destino de ao menos R$ 3 bilhões das chamadas emendas de relator-geral, indicadas no Orçamento pela sigla RP9, destinadas ao Ministério do Desenvolvimento Regional.
Não há qualquer informação pública sobre qual político indicou o quê, como já admitiu o próprio governo. Grande parte dos recursos foi parar em redutos eleitorais e será usada para a compra de tratores a preços até 250% acima da tabela de referência do governo, razão pela qual o esquema de toma lá, dá cá ganhou o nome de “tratoraço” nas redes sociais.
O ministério tem afirmado que “preço de referência não existe no governo federal” e trata o documento como “uma cartilha meramente ilustrativa”. O ministro Rogério Marinho já admitiu ao jornal O Globo a distribuição política dos recursos, o que ele afirma não ver problema. Pelas regras orçamentárias, os recursos deveriam ser aplicados conforme decisão do governo e com base em critérios técnicos, e não políticos.
Se o dispositivo almejado pela ala política prosperar, os ministérios poderiam solicitar ao relator do Orçamento de 2021, senador Marcio Bittar (MDB-AC), a indicação final dos recursos, abrindo o caminho para o governo honrar seus acordos políticos. No início do ano, o próprio governo acenou com um espaço de R$ 16,5 bilhões em emendas de relator em troca da aprovação da chamada PEC emergencial, que instituiu mecanismos de controle de gastos considerados essenciais pelo time do ministro da Economia, Paulo Guedes.
A indicação do relator autorizada pela portaria resguardaria as indicações de 2021.
Em 2020, como mostrou o Estadão, elas foram feitas em ofícios remetidos por parlamentares, em sua maioria aliados do governo, sem a devida transparência e sem compromisso com divisão igualitária de recursos.
O Ministério da Economia confirmou ao Estadão/Broadcast, por meio de sua assessoria, que “não existe nenhum regramento constitucional ou legal que lhe atribua (às emendas de relator) caráter impositivo, ao contrário das emendas individuais e de bancada estadual, às quais se atribui o caráter de execução obrigatória, conforme previsão constitucional”.
“Sendo assim, o entendimento técnico que pauta as discussões sobre a nova portaria é o de que qualquer regulamentação dos procedimentos voltados à execução ou ajustes orçamentários de programações decorrentes de emendas de relator-geral (RP9) deve seguir os mesmos princípios e exigências aplicáveis à execução das despesas discricionárias”, diz a nota.
Os chamados gastos discricionários incluem despesas de custeio e investimentos e são direcionados pelos próprios ministérios.
A Casa Civil informou apenas que a regulamentação dos procedimentos e prazos das emendas é prevista no artigo 73 da Lei de Diretrizes Orçamentárias (LDO) e que a portaria conjunta é normalmente editada pela Secretaria de Governo e pela Economia, direcionando os questionamentos a esses órgãos. A Segov não respondeu até a conclusão desta edição.
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