Análise do impacto das emendas parlamentares nas relações de poder e implicações para as políticas públicas

Resumo

The study analyzes the impact of parliamentary amendments—particularly mandatory budget amendments—on the relationship between the Executive and Legislative branches in Brazil and their consequences for public policies. Two main axes structure the research: first, by examining the impact of parliamentary amendments, especially the mandatory ones, on the balance of power within Brazilian coalition presidentialism, assessing effects on governability; second, by evaluating the consequences of these amendments for public policies, especially in terms of reach and traceability. The methodology combines qualitative and quantitative approaches, including document analysis and official data obtained through the Transparency Portal and the Access to Information Law. Quantitative analysis was supported by statistical tools such as Python, Excel, and Power BI. The public budget is primarily a political instrument, which is only later adjusted to legal and accounting techniques after being shaped through political negotiation. In this context, parliamentary amendments are part of the broader political game and have evolved significantly, to the point of redefining power relations in Brazil—impacting not only budgetary matters but also the President’s agenda-setting power and, potentially, the prevailing system of government. Compared to other major OECD democracies, Brazil presents an atypical model, with a large share of discretionary funds reserved for mandatory amendments, a pattern without parallel. In the realm of public policy, although some degree of territorial distribution exists, parliamentary amendments still concentrate a large portion of resources in certain states. At the municipal level, the distribution remains highly concentrated. Regarding traceability, oversight bodies such as the Office of the Comptroller General (CGU), Federal Court of Accounts (TCU), Ministry of Management and Innovation (MGI), and Supreme Federal Court (STF) have shown diligence in promoting transparency through the Transferegov Portal. Nonetheless, challenges remain—particularly in “fund-to-fund” transfers, including the so-called PIX amendments, due to limited database integration and unstructured data. It is concluded that there is a reduction in the President’s agenda-setting power; however, it is inconclusive whether this effect is directly caused by mandatory amendments. The territorial reach of the amendments remains low, and while efforts toward traceability are underway, key structural and technical challenges persist. Brief suggestions are presented, such as reclassifying governmental functions and subfunctions for amendments, and prohibiting PIX-type amendments in election years.

Ficha do documento

Tipo

Dissertação

Ano

2025

Instituição

Fundação Getulio Vargas

Fonte

Repositório da FGV

Idioma

Português

Acesso

Acesso aberto

Identificador

oai:repositorio.fgv.br:10438/36842

Temas

Políticas PúblicasFinanças PúblicasAdministração PúblicaGovernança

Palavras-chave

Orçamento impositivoEmendas parlamentaresPresidencialismo de coalizãoGovernabilidadePoder de agendaCapilaridadeRastreabilidadeMandatory budgetParliamentary amendmentsCoalition presidentialismGovernabilityAgenda powerCapillarityTraceabilityAdministração de empresasAdministração públicaPolíticas públicasBrasil - Política e governo