Escolar Documentos
Profissional Documentos
Cultura Documentos
CHAPTER 7
130
1
Jorge Abraho de Castro, Secretaria de Planejamento e Investimentos Estratgicos do Ministrio do Planejamento, Oramento e Gesto (Ministry of
Planning, Budget and Management, Brazil).
2
According to Esping-Andersen (1991), The introduction of modern social rights, in turn, weakens the status of individuals as mere merchandise. For
Marshall (1967), social rights correspond to the right to a minimum standard of economic well-being, to full participation in social heritage and to live in
a civilized manner in accordance with the standards established in society.
131
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
UN Photo/Pernaca Sudhakaran
132
133
SOCIAL POLICY
Social promotion
(opportunities and
results)
Social protection
(social security)
Culture, sports
and leisure
Agrarian
development
Education
Social infrastructure
(housing, urbanism,
basic sanitation)
Health
Social security:
general public and civil
service
SECTOR-BASED POLICIES
FIGURE 1
SECTOR-BASED AND CROSS-CUTTING SOCIAL POLICIES IN BRAZIL (2012)
The homeless
Indigenous peoples
GLBT
People with
disabilities
Elderly
Youth
Children and
adolescents
Racial equality
Gender
equality
CROSS-CUTTING AGENDA
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
T H E M A N A G E M E N T,
O R G A N I Z AT I O N A N D
I N S T I T U T I O N A L A P PA R AT U S E S
FOR SOCIAL POLICY
To concretize the policies above, a technical/
bureaucratic apparatus had to be created to provide
the social benefits necessary for responding to
societys demands. The major challenge here was
the technical/political capacity each social policy
sector was required to have in order to set up public
systems to provide goods and social services. It
134
T H E P R I V AT E S E C T O R I N
THE PROVISION OF GOODS
AND SOCIAL SERVICES
In Brazil, market forces have always been allowed
to participate in the provision of public goods
and services. Such a configuration demands that
the state regulate the sector to protect serviceusers, guarantee the stability and continuity
of services, and prevent the coexistence of
public, philanthropic and corporate sectors from
becoming chaotic. These objectives, however,
have not been adequately met in recent years.
Clearly, social service providers from the private
sector have taken on a much greater and far
more complex role than could possibly have been
imagined when the 1988 Constitution maintained
the social area open to private for-profit and nonfor-profit entities.
With regards to social protection, the most typical
example of an area with substantial private sector
participation is that of health. Health care in Brazil
has reached a point where it is impossible to design
a national policy without taking the private sector
into account. As paradoxical as it might seem, due
to the explicit and firm recognition of public health
135
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
136
UN Photo/Eskinder Debebe
TABLE 1
BASIC TYPES OF SOCIAL POLICY INTERVENTIONS IN BRAZIL (2010)
BASIC TYPES
2002(1)
2014(1)
SOCIAL ASSISTANCE
PBF beneficiaries (families)2
14.0 million
2.3 million
4.3 million
18.9 million
27.8 million
4.3 million
4.8 million
6.5 million
1,883.5 million
868.0 million
146.4 million
GUARANTEED
INCOME
SOCIAL SECURITY
Beneficiaries of the RGPS4
Beneficiaries of the RPPS
WORK AND INCOME
HEALTH
Outpatient procedures
1.5 million
2.2 million
10.6 million
8.5 million
4.4 million
5.5 million
33.3 million
24 million
4.4 million
7.6 million
7.2 million
36.9 million
42.2 million
135.5 million
2,391 (2008)
4,078
279,143
1.7 million
1.1 million
65,921
732,348
95,612 (2005)
223,493
2.0 million
0.9 million
1.5 million
(2014/2015)
137
CHART 1
COMPOSITION OF FAMILY INCOME IN BRAZIL (1988, 1998 AND 2008)
100%
86.0%
79.3%
76.5%
75%
% of total income
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
50%
25%
9.5%
15.6%
19.3%
4.4%
5.2%
0%
Employment income
Cash transfers
Other income
1988
1998
2008
Source: IPEA, 2010f.
The minimum monthly amount of social security, BPC and certain unemployment insurance benefits are tied to minimum wage.
138
4.1%
TABLE 2
POPULATION AFFECTED BY THE MINIMUM WAGE POLICY (1995/2013)
DESCRIPTION
Social
policy
INDIVIDUALS
(MILLIONS)
1995
9.3
3.2
29.8
20%
2013
17.7
2.8
49.6
25%
1995
4.7
4.4
20.7
14%
2013
7.4
3.7
27.4
14%
1995
0.3
0.3
4.4
1.3
2013
0.7
3.7
2.6
1%
1995
14.3
51.8
34%
2013
25.8
79.5
39%
1995
6,8
6.8
4.4
29.9
2013
8.9
3.7
32.9
16%
81.7
54%
112.5
56%
Unemployment
Insurance3
Total
Total
PERCENTAGE
OF THE
POPULATION
YEAR
State action1
Labour
market
FAMILY SIZE
POPULATION
(NUMBER OF
(MILLIONS)
INDIVIDUALS)
BENEFITS
Direct regulation5
1995
21.1
2013
34.7
Source: Data from PNAD/ IBGE, MTE and MPS.6 Prepared by the author.
Notes:
1
Monthly benefits or wages whose value is fixed to the minimum wage and paid directly by the state.
2
Number of beneficiaries (RGPS and RPPS) receiving benefits set at one minimum wage.
3
Formally employed workers: total workers receiving unemployment insurance benefits whose monthly amount varies from one to three times
the minimum wage.
4
Civil servants and military employees who earn minimum wage.
5
Employees, domestic workers, self-employed or employers who earn minimum wage.
6
National Household Sample Survey (PNAD)/ Brazilian Institute of Geography and Statistics (IBGE); Ministrio do Trabalho e Emprego/
Secretaria de polticas pblicas de emprego (Ministry of Labour and Employment/Secretariat of Public Policies on Employment); and AEPS:
infologo. Base de dados histricos da previdncia social, Ministrio da Previdncia Social (Ministry of Social Security).
139
GOVERNMENT EXPENDITURE
AND FUNDING FOR SOCIAL
POLICY
Expanding and maintaining the social benefits
described above required mobilizing adequate
financial resources to cover the cost of providing
them. This has led to a steady rise in social
spending in the last thirty years, especially since
CHART 2
PUBLIC SOCIAL EXPENDITURE AND AREAS OF INTERVENTION AS PERCENTAGES OF GDP
10%
10%
0%
0%
5.0 %
5.0
Total PSE
Total PSE
1995
2005
1995
2005
2010
2010
30%
10.0
25.2%
7.4%
7.4
21.9%
20%
10%
19.2%
4.4 %
4.4
Percentage of GDP
19.2%
19.2%
10.0 %
10.0
Percentage of GDP
20%
20%
21.9%
21.9%
25.2%
25.2%
Percentage of GDP
Percentage of GDP
30%
30%
Percentage of GDP
Percentage of GDP
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
7.4
5.0 %
5.0
5.0
3.8 %
3.8
1.4 %
1.4
4.4
0.9 %
0.9
1.8 %
1.8
5.0
3.8
0.5 %
0.5
Social
Civil servant
Health
Social
Education- Work and Housing and
Others
Social- 0%Civil
servant
Health
Social
Education income
Work
and sanitation
Housing
and
Others
Social
Civil servant
Health
security
benefits
assistance
Total PSE assistance
security
benefits
income
sanitation
security
benefits
RGPS
2010
RGPS
RGPS
1995
2005
2010
2010
140
7
Public Social Expenditure (Gasto Pblico Social, GPS) is made up of the gross financial resources used by the public sector to respond to social
demands. It corresponds to the costs of goods and services including capital goods and cash transfers, without deducing the amounts that
correspond to the recovery, depreciation or amortization of investments in stocks or the recovery of the principal of earlier loans.
1.4
Social
assistance
2010
Educa
CHART 3
GOVERNMENT SPENDING ON BASIC SOCIAL POLICIES AND THE ADMINISTRATION OF
THESE POLICIES AS A PERCENTAGE OF TOTAL SOCIAL SPENDING (2008)
100%
Percentage of PSE
75%
51.9%
43.4%
50%
25%
4.7%
0%
Administration and
Guaranteed income - cash
management of social policies
transfers
CHART 4
PUBLIC SOCIAL EXPENDITURE AND THE TAX-TO-GDP RATIO (2010)
40.0 %
Percentage of GDP
PSE (2010)
32.0 %
Percentage of income
25.2 %
0.0
40%
34.7 %
Tax-to-GDP
ratio (2010)
25.0 %
1st
2nd
3rd
4th
5th
6th
7th
8th
9th
10th
141
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
8
This kind of approach is based on Kalecki (1954), Kalecki (1974), Thirlwall (2005) and Tavares (1998a). More recently, the work of the IPEA (2010e),
Amitrano (2011) and Bruno and others (2009) is interesting, particularly their eorts to develop a specific approach to the study of medium and
long-term economic growth that takes into account elements of supply, demand and institutional factors, as well as the interactions among them.
9
According to ECLAC (2000), Public social spending is the main instrument that the State uses to influence the distribution of income. []
Its distributive eects will depend on the scale of social spending, its distribution and financing, and the eciency with which the resources
concerned are used.
10
The hypothesis that what is received as basic income is turned into spending on popular consumer goods is the equivalent of saying workers
spend every penny they earn. A slightly dierent version would be the poor spend every penny they earn. Provided we accept the principle of
eective demand (that is, the determination of income and product by macroeconomic spending variables), this hypothesis will lead us to attribute causality to social expenditure. Causality here is related to short term variations in social spending, which co-determine [sic] the income of
poor families and sustain the production and popular consumption of goods-salaries. (Delgado and Theodoro, 2005)
142
B R A Z I L I A N S O C I A L P O L I C Y:
INCOME DISTRIBUTION AND
ECONOMIC GROWTH
Government action in the form of expenditure
on social policies and market regulation are
important elements for the distribution of income
(personal and functional) and key components of
aggregate demand. They are thus central to the
promotion of economic growth.
Moreover, the expectation that the economic
cycle will bring growth is due to the fact that the
majority of social spending goes to cash transfers
to the lower social classes, the purchases of
goods and services, and the remuneration of civil
143
TABLE 3
DISTRIBUTION OF PER CAPITA HOUSEHOLD MONETARY INCOME FOR DIFFERENT STAGES
OF INCOME, BY INCOME QUINTILES (2008-2009)
PERCENTAGE OF TOTAL INCOME APPROPRIATED BY EACH QUINTILE
STATISTICS
INITIAL
INCOME2
ORIGINAL
INCOME1
AVAILABLE
INCOME3
INCOME AFTER
TAXES4
FINAL
INCOME5
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
Quintiles
1st
1.0
2.4
2.6
2.2
4.2
2nd
4.6
5.9
6.2
5.7
7.2
3rd
9.4
10.4
10.9
10.3
10.4
4th
18.1
18.3
18.8
18.3
14.7
5th
67.0
63.0
61.6
63.5
63.5
Gini coecient
(%)
64.3
59.1
57.6
59.8
50.0
596.49
733.04
662.38
561.56
663.50
Average (BRL
Jan. 2009)
See footnote number 13 for an explanation of the methodology used to incorporate state spending on health and education.
12
144
UN Photo/Eskinder Debebe
CHART 5
DISTRIBUTION OF PER CAPITA HOUSEHOLD MONETARY INCOME FOR DIFFERENT
STAGES OF INCOME, BY INCOME QUINTILES (2008-2009)
Final income
67.0 %
63.5%
60.0 %
40.0 %
18.1%
20.0 %
1.0 %
4.2%
4.6%
1st (low)
7.2%
9.4 %
2nd
10.4 %
3rd
14.7 %
4th
5th (high)
61.6 %
63.5%
60.0 %
40.0 %
18.8 % 18.3%
20.0 %
2.6 %
2.2 %
6.2%
10.9 % 10.3 %
5.7 %
1st (low)
2nd
3rd
4th
5th (high)
145
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
TABLE 4
INCOME INEQUALITY AMONG GROUPS OF FAMILIES BASED ON TYPES OF EXPENDITURE
(2006)
TYPE OF EXPENDITURE
GINI VARIATION IN
RELATION TO INITIAL
INCOME = (G1 - G0) / G0
0.3805
0.3716
0.3723
0.3749
0.3759
0.3764
0.3806
0.3807
-2.33%
-2.15%
-1.47%
-1.22%
-1.09%
0.04%
0.05%
0.3809
0.11%
146
13
To incorporate these services into the incomes of beneficiary families, one must factor in government spending on these services because
it behaves like a transfer to the families that consume public education and health. In the end, government consumption is not truly its own,
but rather that of the families that benefit from the public services it provides. Failure to incorporate government spending will aect the
comparison of the impacts of the aggregates studied on distribution and lead the eects of direct income transfers to be overestimated and the
impact of access to goods and social services to be underestimated.
CHART 6
DISTRIBUTION EFFECTS OF PUBLIC EXPENDITURE ON EDUCATION (2006)
(b) (b)
Urban
Urban
(a) (a)
Rural
Rural
10% 10%
10% 10%
6.0% 6.0%
5%
0%
5%
5.0% 5.0%
5%
2.2% 2.2%
0%
11 to1514
15 or more
under 1under 11 to 3 1 to 34 to 7 4 to 78 to 108 to 10
11 to 14
or more
year year
Variation
Variation
induced
induced
by spending
by spending
1% of 1%
GDPofonGDP
education
on education
0%
1.9% 1.9%
0%
under 1under 11 to 3 1 to 3 4 to 7 4 to 78 to 108 to 10
11 to 14
11 to1514or more
15 or more
year year
Variation
Variation
induced
induced
by spending
by spending
1% of 1%
GDPofonGDP
education
on education
14
According to the IPEA (2010d): Using the economic aggregates of the IBGEs National Accounts System for 2006, the average multiplier of
autonomous spending in general (investments, exports and government expenditure) was 1.57. In other words, for every BRL 1 invested - in
response to external demand and spent by government - an additional BRL 1.57 of GDP would be generated. Said dierently, every expenditure
equal to one percent of GDP will provoke on average a 1.57 percent growth in GDP, only through the income multiplying process mentioned
above, if all other conditions remain constant. In regards to family income, which is a more suitable unit for analyzing the well-being of Brazilians, the average multiplier associated to autonomous expenditure is 1.17 percent. This means that when one percent of GDP is generated by
an increase in investment, exports or government spending, families incomes will increase by an average of 1.17 percent.
147
UN Photo/Eskinder Debebe
148
Shock in
spending
Hypothetical
increase of 1% of
GDP in PSE
Government
expenditure
PSE (25.2% of
GDP - 2010)
Social
policy
Aggregate demand
Intermediate consumption
(wages, goods
and services, etc.)
FIGURE 2
THE MULTIPLIER EFFECT OF SOCIAL SPENDING ON INCOME AND THE ECONOMY
Multiplier
effect
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
Leakage
(Tax effect)
= growth of 1.85%
in family incomes .
= growth of 1.37%
in GDP
Results
CHART 7
MULTIPLIER EFFECT OF SPENDING ON SOCIAL POLICY AND OTHER SELECTED AREAS
ON GDP (2006)
3.0
3.0
1.85
1.70
1.44
1.38
1.54
1.23
0.71
0.0
0.0
Education
Health
PBF
BPC
RGPS
Social areas
1.40
0.88
RPPS
Construction
Commodity
exports
Interest on public
debt
Others
15
Assuming the elasticity of GDP of tax revenues is equal to one (1). This elasticity was greater than one in recent years, which would increase the
percentage of return to public coers even more.
149
CHART 8
THE MULTIPLIER EFFECT OF EXPENDITURE ON SOCIAL AREAS AND OTHER SELECTED
AREAS ON FAMILY INCOME (2006)
3.0
3.0
2.25
1.67
2.20
2.10
1.86
1.44
1.04
Construction
Commodity
exports
1.34
0.0
0.0
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
1.14
Education
Health
PBF
BPC
RGPS
Social areas
RPPS
Interest on public
debt
Others
150
CHART 9
COMBINED EFFECTS OF SPENDING ON SOCIAL AND OTHER AREAS ON ECONOMIC
GROWTH AND INCOME DISTRIBUTION (2006)
2.00%
Education
Health
Variation in GDP
1.50%
Investment in
construction
(I)
PBF
BPC
(II)
Commodity exports
RGPS
1.00%
0.00%
-2.50%
(IV)
(III)
-1.50%
-0.50%
0.50%
1.50%
2.50%
Variation in Gini
Source: IPEA, 2010d. Prepared by the author
151
CHART 10
EVOLUTION OF REAL GDP PER CAPITA AND THE GINI INDEX (2001-2013)
28,500
0.6
0.596
27424.31405
27,500
0.59
26,500
0.58
0.57
24,500
0.56
23,500
0.55
22,500
0.54
21,500
0.53
20,500
20418.96238
0.527
0.52
19,500
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
FINAL REMARKS
The degree of complexity of social policy as it
is currently structured in Brazil has been clearly
illustrated by the data and information presented
in this paper. There is a considerable range of
physical, financial, human and institutional
resources for these policies, which are fundamental
for the establishment of a broad and diversified set
of social protection and promotion mechanisms.
152
GINI
Gini coefficient
S O C I A L P R O T E C T I O N F O R S U S TA I N A B L E D E V E L O P M E N T - S P 4 S D
25,500
153
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