Financiamento da assistência social em Belém: um estudo sobre fundo municipal entre 2006 e 2017Financing social assistance in Belém: a study on municipal funds between 2006 and 2017Zaraia Guará Ferreira*Resumo: Este artigo analisou o Fundo Municipal de Assistência Social (FMAS) da cidade de Belém, Estado do Pará, Brasil, entre 2006 e 2017, identificando o processo de cofinanciamento dos três níveis da federação (União, Estado e Município) e sua média de execução. Como suporte teórico e histórico utilizamos o conceito de Fundo Público e sua vinculação ao Estado. Os dados orçamentários (LOA) foram obtidos a partir do portal da transparência do município, da Câmara do Vereadores, da Secretaria de Gestão e Planejamento (SEGEP) e da Fundação Papa João XXIII (Funpapa). Além desses, foram analisados os Planos de Ação e Demonstrativos Físico Financeiros produzidos pela FUNPAPA e encontrados parte no portal SUASWEB, parte disponibilizada pela Fundação. Como resultado da pesquisa observamos o desfinanciamento paulatino dos serviços socioassistenciais e sua baixa média de execução.Palavras-chaves: Fundo Público, Assistência Social, Financiamento.Abstract: This paper analyzed the Municipal Social Assistance Fund (FMAS) of the city of Belém, State of Pará, Brazil, between 2006 and 2017, identifying the co-financing process of the three levels of the federation (Union, State and Municipality) and its average execution. As theoretical and historical support we use the concept of Public Fund and its link to the State. Budget data (LOA) were obtained from the municipal transparency portal, the City Council, the Management and Planning Secretariat (SEGEP) and the Papa João XXIII Foundation (Funpapa). In addition to these, the Action Plans and Physical and Financial Statements produced by FUNPAPA were analyzed and found in part on the SUASWEB portal, part made available by the Foundation. As a result of the research, we observed the gradual defunding of social assistance services and their low average execution.Keywords: Public Fund, Social Assistance, Financing.Recebido em: 10/08/2021Aprovado em: 11/04/2022center85725 IntroduçãoO Fundo de Assistência Social no Brasil tem um arranjo complexo de arrecadação, isenção fiscal, distribuição e execução, desdobrando-se em serviços, benefícios e ações (projetos e atividades), contando com diferentes níveis de financiamento e administração. Junto a outros fundos permeia o centro da discussão política e econômica nacional, travado no debate do orçamento do Estado desde a União até os municípios. Esses fundos setoriais ou especiais são instrumentos orçamentário-contábeis criados por legislação a fim de tornarem administráveis os montantes de recursos destinados a determinada áreas de investimento estatal (Costa, 2012). São, portanto, parte do Fundo Público concentrado pelo Estado, ou seja, montante de valor oriundo do trabalho social expropriado e transformado em lucros, juros ou renda da terra, puncionado através do sistema tributário (Behring, 2010, 2021)O Fundo Público, através do orçamento, é um elemento vinculante entre Estado e economia, um instrumento de transferência de riqueza, podendo funcionar para sua concentração ou distribuição na sociedade. Assim torna-se um elemento de poder fundamental na dinâmica econômica, política e social.O Estado, nesta equação, é a moldura que dá forma ao Fundo Público, não podendo este existir sem aquele, ao mesmo tempo que é o aparato mediador entre economia e sociedade na sua distribuição. Assim, entendemos que estudar o Fundo Público é parte do esforço para entender como são distribuídas as riquezas entre as classes que disputam o excedente do trabalho transformado em tributos e repartindo em diferentes direções.O Fundo da Assistência Social é uma pequena manifestação desse imenso montante de riqueza concentrada, utilizada como resposta à questão social gerada com a exclusão do trabalho (Santos,2012). No Brasil, a assistência social trilhou um longo e contraditório caminho desde o seu nascimento na primeira metade do século XX, apresentando-se como uma necessidade social premente diante da complexificação do capitalismo brasileiro e da emersão da questão social levada ao centro do debate político e econômico nacional.O financiamento ganha destaque dentro da nova Constituição brasileira em 1988, tornando-se uma das mais importantes inovações junto a descentralização administrativa e controle social. Neste trabalho, para observarmos esse financiamento de forma empírica, estudaremos o Fundo Municipal de Assistência Social (FMAS) do município de Belém, Estado do Pará, bem como seu cofinanciamento pelos diferentes entes da Federação, procurando entender como cada um colabora com os serviços da assistência social e como é executado esse montante. Para isso foram realizadas análises dos gastos da Assistência Social no município, através da análise de documentos institucionais do Ministério da Cidadania que dizem respeito ao cofinanciamento do Fundo Municipal, cotejando-os com documentos da Prefeitura de Belém através de suas Secretarias de Gestão e Planejamento (SEGEP) e da Fundação Papa João XXIII (FUNPAPA), esta última responsável pela administração da Assistência Social no município.Fundo público e assistência socialPara estudarmos a formação de fundos púbicos e a forma como as políticas públicas são organizadas e financiadas é necessário abordarmos uma relação fundamental das sociedades modernas, o Estado e a economia. Ou seja, a relação entre a forma política e administrativa que emergiu dos resquícios da sociedade feudal europeia e a organização econômica da sociedade capitalista nascente. As instituições resultantes desse processo são produto de uma longa trajetória de arranjos e rearranjos históricos oriundo da complexificação permanente que passou ao longo dos séculos.O debate sobre a forma e o conteúdo do Estado já atravessa séculos, territórios e conjunturas distintas e não tem data limite para terminar. Poulantzas (2000) nos alerta que é preciso fugir das explicações fáceis que tentam separar uma estrutura estrita e administrativa própria de um Estado gerencial das relações estabelecidas na sociedade, assim como das explicações historicistas que veem o Estado como resultado lógico e cronológico das relações de classes, ou mesmo de interpretações que o colocam como apêndice-reflexo e operativo das lutas e do poder econômico.Essas tentativas de diminuir ou eliminar o Estado como fator central na compreensão da sociedade capitalista fracassaram diante da realidade. Mesmo com a emersão da globalização e sua ideologia neoliberal, após a eliminação das fronteiras para o capital, o Estado Mínimo apregoado, na verdade, transformara-se em máximo para a garantia dos fluxos e da estabilidade comercial e financeira em momentos de crises que não tardam a acontecer (Salvador, 2010; Behring, 2021).É na relação entre Estado e economia capitalista que veremos surgir e desenvolver-se Fundos Estatais que servirão ao financiamento das ações do Estado, em particular, da sua violência institucional legitimada para assegurar em contrapartida o desenvolvimento da economia capitalista. Francisco de Oliveira (1998) ao tentar capitar as origens e importância da relação entre fundos estatais e a formação da economia capitalista, afirmará que “a formação do sistema capitalista é impensável sem a utilização de recursos públicos, que em certos casos funcionam como uma ‘acumulação primitiva’” (p. 20).É a partir da crise de 1929, contudo, e com as intervenções keynesianas na regulação estatal sobre o mercado, que esta categoria ganhará a relevância que carrega até hoje. Para Oliveira (1998) há nessa transição a mudança na natureza do Fundo Público que, antes da crise econômica de Nova York, funcionava, em menor parte, como uma forma de “acumulação primitiva” de capital, um ex-post, e era encontradodesde o casamento dos tesouros reais ou imperiais com banqueiros e mercadores na expansão colonial até a despossessão das terras dos índios para cedê-las às grandes ferrovias particulares nos Estados Unidos, a privatização de bens e propriedades da Igreja desde Henrique VIII até a Revolução Francesa; e, de outro lado, as diversas medidas de caráter caritativo para populações pobres, de que as ‘Poors Houses’ são bem o exemplo no caso inglês” (Ibidem, p. 20).Na fase de regulação keynesiana do Estado capitalista, o Fundo Público adquiriu características, sem as quais, o boom expansionista e cumulativo do capitalismo não seria possível, tornando-se um ex-ante, ou seja, uma condição fundamental (sine qua non) para impulsionar a economia industrial da época. A emersão do Estado Social no séc. XIX e seu formidável crescimento no século XX é debitado por Salvador (2010) ao crescimento do Fundo Público, fomentando tanto as políticas sociais quanto o desenvolvimento do capitalismo nas economias centrais.Durante os anos do Keynesianismo/fordismo, os recursos dos fundos públicos, particularmente o “fundo previdenciário”, foram canalizados para cumprir duas missões: garantir a aposentadoria dos trabalhadores e, durante o processo de acumulação financeira (quando os trabalhadores ativos superam o número de beneficiários), canalizar as reservas para investimentos, sobretudo no setor de infraestrutura (SALVADOR, 2010: 81).Francisco de Oliveira (2015) afirma que o Estado, através do Fundo Público, configura- se como sustentáculo nos momentos das crises cíclicas da economia capitalista, como uma retaguarda sempre acessível para garantia da valorização do capital. Ou seja,(...) a noção de fundo público menos que um conceito acabado, responde a uma necessidade de nomear recursos geralmente estatais que, no capitalismo contemporâneo – a rigor desde a formulação e adoção generalizadas das políticas anticíclicas -, fundem-se aos recursos privados para sustentar, e não apenas reprimir, as tendências depressivas, a expansão do capital (OLIVEIRA, 2015, p. 376).Behring (2010, 2021), acrescenta que, dada a importância do lugar que ocupa o Fundo Público na sustentação da economia capitalista, este transformou-se num elemento “nem ex- ante, nem ex-post do processo de produção e reprodução capitalista, como se supõe que fosse ao período concorrencial, mas um componente in flux do mesmo, que está ali presente no ciclo D – M – D’ ” (2010, p.22). Esse movimento compreenderia a transformação do capital- mercadoria em capital-dinheiro no processo de produção e circulação de mercadorias (Behring, 2012), tendo para isso como seu mediador o crédito privado e o fundo Público (Estado), sendo este último “parteiro” ou “uma mediação decisiva no capitalismo” (Behring, 2012. p. 156)A dupla forma de execução do Fundo Público, direto e indireto, para a reprodução ampla do capitalismo é uma de suas características imanentes na atualidade. Tanto contribui para o desenvolvimento econômico via investimentos na produção (diretos), quanto para a reprodução da classe trabalhadora, via investimentos em Políticas Sociais (salários indiretos), repassando parcial ou totalmente os custos do trabalho para o poder público, aumentando assim a margem de mais-valia extraída no processo de produção capitalista.No Brasil a formação do Fundo Público ganha importância com a emersão do Estado Desenvolvimentista a partir da década de 1930, no governo de Getúlio Vargas. A este modelo de Estado preocupa um planejamento econômico centrado no desenvolvimento, cuja o processo de industrialização ocupa papel central, sendo comum o Estado assumir nichos Industriais diversos dependo do que seja necessário para impulsionar a economia. O Estado Desenvolvimentista caracterizou-se por assumir as tarefas estruturais do desenvolvimento econômico capitalista e promover uma ampla coalizão de classes que envolvesse a burocracia estatal, empresários, trabalhadores que passam a adotar uma estratégia direcionada para o progresso sustentado da economia (Perissionotto, 2014). Sua delimitação temporal é geralmente estabelecida entre o início do governo de Getúlio Vargas (1930) até o fim da ditadura militar (1985).No Brasil é identificado como precursor da política social de Estado, onde a questão social oriunda do desemprego foi abordada de frente, como eixo promotor do projeto de desenvolvimento nacional. Nesse período vimos no Brasil a formação de instituições que passaram a intervir cada vez mais na condução da economia visando sua industrialização, ao mesmo tempo, que outras tratavam da Previdência, Saúde, Assistência Social, Educação, entre outras, colaborando de forma indireta para reprodução do capital industrial nascente, tendo o Fundo Público e Estatal como protagonista (Draibe, 2004; Ianni, 1979). Previdência Social e Saúde sempre referenciadas ao mercado de trabalho formal, de maneira que só trabalhadores com carteira assinada poderiam acessá-la; e Assistência Social expressa na forma da caridade e filantropia aos “inválidos”, depois assumida pelo Estado.A Assistência Social no Brasil faz um extenso e tortuoso percurso ao longo do século XX manifestando-se em formas distintas à medida que a questão social vai tomando centralidade no processo político do país incentivada/deslocadas pelas lutas seminais da classe trabalhadora, também instrumento institucional para contenção de ebulições políticas. Nasce no bojo das políticas sociais exigidas pelas transformações econômicas e sociais oriundas do processo de industrialização e urbanização do país. Sua origem deu-se primeiramente de forma não estatal através da ação caritativa da Igreja Católica no socorro aos incapazes para o trabalho, crianças e velhos pobres e abandonados, homens e mulheres inválidos, descartados no processo social que não tinham outro destino que não fosse essa forma de ajuda (Couto 2010).Sua forma estatal no Brasil, ocorrerá duas décadas após o surgimento das primeiras Caixas de Aposentadorias e Pensões (formas embrionárias de previdências sociais no Brasil) e tem como marco a criação da Legião Brasileira de Assistência (LBA) criada em 1942 pelo presidente Getúlio Vargas e coordenada pela primeira-dama Sra. Darci Vargas para atendimento às famílias dos soldados que foram a Segunda Guerra Mundial na Europa. A LBA era uma iniciativa assistencialista, restrita a ajuda filantrópica e focalizada a um setor específico, tendo, nos anos seguintes, porém, ampliado sua ação para populações em situação de vulnerabilidade social, servindo como forma de legitimação do governo ditatorial, passando esta entidade a comandar oficialmente as ações de Assistência Social no Brasil (Behring & Boschetti, 2011).Em 1969, a LBA ganhará status de Fundação e será incorporada ao Ministério do Trabalho e Previdência (MTP) e posteriormente, no ano de 1974, ao Ministério da Previdência e Assistência Social (MPAS). Denota-se deste percurso a vinculação que Assistência Social passará a ter com os processos de formalização do trabalho – servindo como retaguarda para os incapacitados para o trabalho – e formando junto com a Previdência o que Boschetti (2008) chama de “complexo previdenciário-assistencial”.Com o processo de redemocratização do Brasil e com a nova constituição em 1988 a Assistência Social será alçada a política pública de seguridade social junto com saúde e Previdência, representando um salto qualitativo na sua organização e financiamento. Entretanto, foi confrontada com a emersão do modelo neoliberal de Estado, orientado pelas receitas do Consenso de Washington, cujos objetivos eram a restrição a qualquer proposta de universalidade que demandasse aumento de investimentos em Políticas Sociais.A Lei Orgânica da Assistência Social (LOAS), por exemplo, só seria aprovada em dezembro de 1993, após ser rejeitado por completo em 1990 pelo presidente Collor. A primeira Política Nacional de Assistência Social (PNAS) foi aprovado em 1998 e a segunda apenas no ano de 2004, 11 anos após a provação da LOAS. Segundo Couto (2010), o projeto neoliberal de desmonte do Estado somado ao preconceito e falta de densidade política e conceitual foram responsáveis pelo atraso na regulamentação da Assistência Social. Para Sposati (2013: 36) "o acúmulo era pouco, era difícil avançar em propostas para além de diretrizes que apontassem os valores éticos dessa política”.O neoliberalismo em sua emersão apresentou a programática econômica, social e ideológica que permitiu a reformulação do aparelho estatal facilitando a recomposição das taxas de valorização do capital, sucumbidas após mais uma severa crise cíclica de acumulação. Assim, o Estado foi alvo estratégico, dado seu papel de regulador social e econômico em favor das regras de mercado, promovendo redução de impostos, diminuição dos gastos sociais restringindo a Proteção Social, privatização de empresas públicas, controle da massa monetária para controle da inflação, desregulamentação dos mercados, incluindo o de trabalho (Salvador, 2010), medidas que afetavam diretamente a composição do Fundo Público até então bastante comprometido com políticas sociais e econômicas.O Estado mínimo, proposto por este modelo, serviu muito mais como elemento de propaganda ideológica contra o intervencionismo do Estado Social keynesiano e desenvolvimentista, do que de fato a um objetivo exequível. Isso se explica em maior grau pela necessidade que a liberalização financeira tem de valorizar seu capital a partir dos Fundos Públicos (Behring, 2021, cap. 1) e, em menor grau, devido à incapacidade do crescimento neoliberal e de absorver a reprodução da força de trabalho atingida pelo desemprego ascendente e cada vez mais demandante de políticas sociais públicas, o que pressupõe um gasto estatal elevado. Behring (2021, cap. 7) explica como o ajuste fiscal tornou-se a explicação para contingenciamentos em Políticas Sociais, tornando-se por fim uma justificativa permanentes para expropriação do Fundo Público.Nesta relação entre Fundo Público e finanças, temos os orçamentos como modelos desenhados para a gestão e planejamento da administração pública, formatando grande parcela do Fundo Público, organizando sua distribuição entre as classes na sociedade, contendo em si, também os instrumentos para os ajustes fiscais requeridos pela economia política neoliberal- financista.Por opção da política econômica e das forças políticas que apoiam o governo, os interesses beneficiados com os pagamentos dos juros – o capital financeiro nacional e internacional – conseguiram incrustar-se no orçamento e passaram a comandar as decisões de gastos em seu benefício, com prejuízo para o desenvolvimento e para a oferta de políticas públicas à sociedade pelo Estado (OLIVEIRA, 2009, p. 113).Assim este setor vai se apropriando dos Fundos Públicos, tanto os de caráter discricionários, que ficam sob a decisão do governo, como os vinculados, obrigatórios e direcionados a Políticas Públicas específicas. Sendo por isso, na verdade, que sempre ressurgem as propostas de reformas para desvinculação de receitas constitucionais de políticas sociais como Saúde e educação. Desta forma, vemos como o modelo neoliberal pavimentou o caminho para apropriação do Fundo Público pelos detentores do capital financeirizado, a fim de recomporem permanentemente suas taxas de rentismo e lucro, ao mesmo tempo provocando um processo avassalador de privatizações das políticas sociais no Brasil.Fundos especiais e assistência social: descentralização e cofinanciamentoO repasse entre Fundos Especiais foi um dos claros avanços estabelecidos pelo Constituição de 1988 no financiamento de Políticas Sociais, por proporcionar maior controle sobre o fluxo de recursos e carimbá-lo para uso exclusivo de tal política. Porém uma considerável parcela ainda passa por fora desse instrumento contábil/orçamentário, o que implica em dificuldades para o controle da sua execução, sendo muito comum encontrarmos discrepâncias entre as cifras em diferentes documentos, mesmo quando elas descrevem o mesmo serviço, programa ou ação. Quando tentamos cruzar os dados do cofinanciamento do FMAS usando orçamento municipal e o SuasWeb encontramos esses problemas. O FMAS está entre os fundos especiais como descritos pela Lei 4320/1964, que a define como “produto de receitas especificadas que por lei se vinculam à realização de determinados objetivos ou serviços” (Art. 71), tendo a aplicação de suas receitas dada por dotação especificada na Lei do orçamento (Art. 72). Os Fundos Especiais são instrumentos consolidados na Administração Pública, tendo previsão desde 1922 no Código de Contabilidade da União (Costa, 2012). Seu formato contemporâneo permite, segundo Colin (2008), vantagens na canalização do Fundo Público para “o cumprimento das funções e obrigações das políticas sociais” (p. 221), como: 1 – melhor distribuição e gestão dos recursos; 2 – identificação das responsabilidades na sua administração; 3 – maior controle sobre o seu funcionamento; 4 – transparência na gestão dos recursos; 5 – relação com outros fundos, sem perda de autonomia; 5 – Detalhamento das informações nos serviços prestados; 6 – acompanhamento permanente da evolução dos custos das ações e serviços desenvolvidos.Suas principais características são: 1 – Ter receitas especificadas em Lei; 2 – vincular- se a realização de determinados objetivos ou serviços; 3 – estar prevista na Lei que institui a destinação de seus recursos, bem como do órgão ao qual se vincula e a quem se atribui a sua gestão; 4 – ter contabilidade própria e segregação de contas, donde derivam informações para seu controle; 5 – tem suas contas apreciadas pelos órgãos de fiscalização competente; 6 – ter seu saldo financeiro de um exercício encerrado, remetido ao exercício subsequente. (Idem, p. 222)Os fundos de Assistência Social são instrumentos de gestão orçamentária e financeira com Personalidade Jurídica própria, onde devem ser alocadas as receitas e executadas as despesas “relativas ao conjunto de ações, serviços, programas, projetos e benefícios de Assistência Social” (SUAS, 2012, p. 32). É por este instrumento que são contabilizados, nos municípios, os recursos oriundos do confinanciamento Federal, Estadual e Municipal, destinados aos serviços socioassistenciais.O FMAS é um fundo especial cuja formação representa parte do Fundo Público destinado a esta política. Analisá-lo nos dá um bom dimensionamento de como se constitui esta importante parcela do Fundo Público da Assistência Social, e o papel que cumpre para a estrutura desta Política no município. Segundo a Política Nacional de Assistência Social (PNAS) é um dos instrumentos de gestão financeira da Assistência Social ao lado do orçamento, sendo expressa na LOA como unidade orçamentária específica, embora seja compósita também do orçamento da Funpapa (outra unidade orçamentária). Essa complexa combinação, cumpre, por um lado, relevante papel de planejamento orçamentário do Fundo Público da Assistência Social no município e por outro acarreta alguns problemas de controle.Os valores destinados ao orçamento da Funpapa (LOA) representam em sua maior parte o financiamento da Estrutura, Recursos Humanos e Gestão, enquanto o FMAS representa o financiamento dos Serviços, Programas, Projetos e Ações, distribuídos entre os diferentes níveis de proteção. Em média o FMAS representou entre os anos de 2006 e 2017 25,64% do orçamento da Funpapa, com alta em 2006 (39,99%) e baixa em 2017 (11,77%).O Fundo Municipal de Assistência Social de Belém foi criado pela Lei n 7857/1997 e desde lá vem concentrando os repasses feitos da União (FNAS), do Estado (FEAS) e do tesouro municipal para financiamento dos Serviços Socioassistenciais como determina a LOAS. Tal processo fez parte da descentralização político, administrativo e financeiro preconizado pela CF88 e pela nova legislação de Assistência Social. Tal autonomia de gestão local implicou em dificuldades adicionais à muitos municípios brasileiros no que diz respeito ao cofinanciamento, como explica Salvador (2010)Ao mesmo tempo que a Constituição descentralizou a arrecadação tributária não fez mesmo no tocante às responsabilidades de execução das políticas sociais, ou seja, ‘não existiu uma correspondência necessária entre distribuição de encargos a receitas, fazendo com que alguns estados e municípios não consigam arcar com as novas atribuições (AFFONSO apud SALVADOR, 2010, p. 182. 2009).A gestão da Assistência Social em Belém recebeu a incumbência de novos Serviços Socioassistenciais de competência municipal como os previstos pelo ECA e mais os executados até então pelo Estado e agora assumidos pelo município, sem que houvesse os devidos estudos de impacto administrativos e financeiro, acarretando problemas adicionais para o orçamento municipal, como explica a professora e ex-presidente da Funpapa Sandra Helena Ribeiro CruzConcretamente esse processo significou a constituição de mais um problema para o município por dois motivos: primeiro porque a transferência político-administrativa dos serviços não precedeu a realização de um estudo ou diagnóstico sobre a realidade dos mesmos, suas condições de funcionamento e atendimento. Segundo, porque o processo não pautou, nem de perto, a questão do financiamento, gerando para o município mais um gasto em suas contas, sem nenhuma contrapartida do governo estadual e havendo apenas a descentralização dos recursos advindos do FNAS para o FMAS, sem nenhuma atualização monetária no que diz respeito às per capitas, referência de valores estabelecidos para os serviços assistenciais e financiados pela esfera da União (Cruz,2003. p. 74, 75).A ausência de uma legislação que determine percentuais fixos ou mínimos para o cofinanciamento era (e ainda é) um obstáculo a manutenção da estabilidade do financiamento da Assistência Social. Assim, os governos Estaduais, com a municipalização, reduziram sua participação no cofinanciamento, chegando a anulá-la por muitos anos como é o caso de Belém.O cofinanciamento, por sua vez, é uma forma de compartilhamento do financiamento entre os três entes governamentais e é previsto na Lei Orgânica da Assistência Social (LOAS art. 6º Inciso I e § 3º do art. 28) e na Política Nacional de Assistência Social (PNAS) no sentido da descentralização político-administrativa-financeira. Porém, são nos dispositivos do SUAS que esse ganhará operacionalidade definindo critérios de acesso ao Fundo Nacional de Assistência Social como: I - Conselho de Assistência Social instituído e em funcionamento; II- plano de Assistência Social elaborado e aprovado pelo Conselho de Assistência Social; III - fundo de Assistência Social criado em lei e implantado; e IV - alocação de recursos próprios no fundo de Assistência Social (SUAS, 2012, p. 33).O cofinanciamento do FMAS está ligado estreitamente ao processo de descentralização política administrativo inaugurado na Constituição Federal de 1988, quando determina coparticipação das unidades federativas (União, Estados e Municípios) no processo de planejamento, gestão e financiamento das políticas sociais, dividindo competências e responsabilidades entre si.Salvador (2014) comenta que essa descentralização avançou no início dos anos 2000 com a regulamentações relativas à Saúde, Educação e Assistência Social. Esta última já desde 1993 através da LOAS (Lei 8742/91) que estabelece a descentralização como uma diretriz ao lado do comando único e da participação social. Contudo, só foi a partir da PNAS/2004 (Res.1451 5/09/2004) e NOB-SUAS/2005 (Res. 130 15/07/2005) e NOB-SUAS/2012 (Res. 33 11/12/2012) que foram estabelecidas as estruturas que puderam operacionalizar os princípios/diretrizes organizativos da Assistência Social.O cofinanciamento, portanto, é parte da construção democrática da Seguridade Social, onde os três entes participam de seu financiamento, com planejamento e execução sob controle social dos Conselhos e das Conferências de Assistência Social. Cada ente assumindo uma responsabilidade específica, tomando como pressuposto a ideia de que apenas a distribuição das responsabilidades e envolvimento social e político é possível obter uma abordagem eficaz das situações enfrentadas. Para Mesquita, Martins e Cruz (2012) todo esse processo agrega dificuldade técnicas e políticas, entre as quais temos: a indefinição por meio legal dos percentuais a serem comprometidos pelos entes cofinanciadores e a reduzida participação dos Estados no Cofinanciamento. Adiante veremos esses e outros problemas ao abordarmos os dados do FMAS no município de Belém.Fundo municipal de assistência social: desfinanciamento e estagnação17862551383665GRÁFICO I - PARTICIPAÇÃO DO COFINANCIAMENTO DOFMAS - EM MÉDIA - DE 2006 A 2017MUNICPIO28,9%ESTADO1,80%UNIÃO70,8%00GRÁFICO I - PARTICIPAÇÃO DO COFINANCIAMENTO DOFMAS - EM MÉDIA - DE 2006 A 2017MUNICPIO28,9%ESTADO1,80%UNIÃO70,8%Quando partimos do orçamento a primeira evidência a ser destacada dos dados é o fato do Fundo Municipal de Assistência Social ser mantido em maior parte pela União, seguida do município, enquanto o Estado comparece com valores muito baixos ou nulos. Ao longo dos anos estudados a União colabora com a maior proporção do cofinanciamento do FMAS, em média 70,8% do total.Elaboração do Autor: dados oriundos das Leis Orçamentárias Anuais de 2006 a 2017Em nossa pesquisa essas cotas variam para a União entre 77% (2016) e 63,9% (2013) e para Município 37,7% (2014) e 21,3% (2016). Mesquita, Martins e Cruz (2012), ao analisar dados de 2009 do SUASWeb atestam que essa configuração, em que o repasse da União é consideravelmente superior ao municipal, é característica das metrópoles do Nordeste e Norte do Brasil. Em especial as metrópoles desta última que ocupam o primeiro lugar com 79% em média na cota-parte da União sendo repassadas aos fundos municipais (idem, p. 44).Curiosamente, o cofinanciamento federal cai para menos de 50% para todos os menores municípios do Norte do Brasil no mesmo ano, cujas arrecadações fiscais são significativamente menores que das metrópoles. Tal configuração indica que o baixo cofinanciamento dos municípios, a exemplo de Belém, são fruto de opção administrativa e política dos governos municipais, não acompanhando a demanda pelo serviço que crescera com a população, a desigualdade e a exclusão.Quando analisamos a série histórica 2006-2017 do cofinanciamento do FMAS pelas Leis Orçamentárias anuais (Tabela 01) e corrigimos pelo IPCA para 2017, vemos uma involução considerável do cofinanciamento dos 03 níveis da federação, com expressiva diminuição do cofinanciamento Municipal que perdeu mais de um terço de seu valor em 12 anos (- 35%), seguidos pela União (-13,4%) e pela Estado (-3,2%).Tabela 01 - Evolução do cofinanciamento do FMAS/Belém pela LOA 2006 a 2017 - Despesas – corrigidas pelo IPCA para 2017 (Valores em R$)2006200920132017MédVar.UNIÃO15.036.224,512.833.051,811.051.478,713.021.959-13,4%72,7%71,9%63,4%76,5%70,8%ESTADO000324.600-3,2%0001,9%1,80%MUNICIPIO5.657.414,45.005.182,86.366.390,53.679.209-35,0%27,3%28,1%36,6%21,6%28,9%TOTAL20.693.638,8717.838.23517.417.86917.025.768-17,7%Elaboração própria. Valores oriundos das Leis Orçamentárias Anuais de 2006 a 2017, por meio de cotejamento das seguintes planilhas: 1 – Receita por Categoria Econômica: FUNPAPA (Orçamento Fiscal e da Seguridade Social); 2 – Programa de Trabalho por Unidades: FMAS/ demonstrativos e receitas. (Orçamento da Seguridade Social).O enfraquecimento da Assistência Social no município, portanto consolida-se com o seu desfinanciamento deliberado, acompanhando uma tendência nacional, porém muita mais acentuada a nível local. O resultado é a estagnação e retrocesso dos serviços socioassistenciais.A contribuição da cota-parte do Estado durante o período estudado só começou em 2014 e representa um valor pouco expressivo em comparação as cota-partes da União e do Município. O que configura uma direta ruptura com o princípio do cofinanciamento estabelecido na PNAS e levanta o debate da necessidade de estabelecimento legal de uma percentagem mínima destinada ao financiamento da Assistência Social para as três esferas da federação, como já previsto para saúde e educação.Diante da ausência de tal legislação os Estados, como nível intermediário da PNAS, entenderam-se desobrigados a cofinanciarem a Assistência Social. Ainda que tenham a obrigação normativa de cofinanciar benefícios eventuais, atendimentos de emergência, serviços regionalizados de proteções sociais e apoio técnicos e financeiro as prefeituras tanto para serviços quanto para gestão como determina a NOB-SUAS (2005). Ao passo que a União e os municípios, os principais financiadores, arbitram mudanças orçamentárias que muitas vezes são deletérias ao desenvolvimento da Assistência Social.Quando comparamos a projeção das despesas no orçamento aos dados de execução do FMAS através demonstrativos físico financeiros da Funpapa, vemos algumas alterações preocupantes a serem observadas. As tabelas 2 e 3 mostram essa comparação entre orçamento de despesas e execução para Assistência Social ente 2006 e 2017. A primeira coisa a se observar é a ampla variação, para alguns anos, na execução do cofinanciamento do município, alguns acima do esperado e na maioria dos outros anos abaixo do esperado.Na tabela 2 vemos que houve execuções no município acima das despesas orçadas em 2007 (119,9%), 2010 (121,2%) e um abrupto crescimento em 2016 (877,8%) e 2017 (1066,9%). Segundo técnicos da Diretoria Financeira da Funpapa, 2007/2010 explicam-se pela inclusão de receitas de reprogramação não executadas no ano anterior e 2016/2017 pela mudança de metodologia nos registros enviados ao Ministério do Desenvolvimento Social, incluindo para estes anos as folhas de pagamento da instituição o que provocou essa abrupta alteração. Uma justificativa que contradiz a legislação que destina os recursos dos Fundos de Assistência Social majoritariamente para serviços, permitindo a financiamento de Recursos Humanos apenas alguns casos bastantes específicos.TABELA 02 – Despesas (LOA) e Execução (Funpapa) do FMAS – Município e União – 2006 a 2017 – Corrigidos pelo IPCA para 2017 (Valores em R$).MUNICÍPIOUNIÃODESPESAS (LOA)EXECUÇÃO(Funpapa)%DESPESAS (LOA)EXECUÇÃO(Funpapa)%20065.657.414,45.069.540,3289,6%15.036.224,512.314.662,7481,9%20074.699.6975.634.780,58119,9%13.539.777,3--------------------20084.091.4442.861.847,1969,9%12.736.533,4-------------------20095.005.182,85.005.182,83100,0%12.833.051,89.045.307,2770,5%20105.169.995,56.263.808,95121,2%9.747.340,08.901.710,3191,3%20115.561.704,05.062.894,3091,0%13.073.884,59.176.227,1870,2%20125.714.705,64.965.036,7586,9%12.048.164,711.069.248,9391,9%20136.366.390,53.218.557,3450,6%11.051.478,72.111.417,5919,1%20146.587.322,24.284.259,4665,0%10.895.900,56.480.405,8159,5%20155.118.095,14.771.774,5893,2%13.090.231,5118.888,960,9%20164.207.674,536.936.340,81877,8%15.239.005,35.434.873,4835,7%20173.679.20939.251.804,931066,9%13.021.9598.135.163,7862,5%Elaboração do autor. Fonte: Despesas na Leis Orçamentárias Anuais (LOA) e Demonstrativos Físico Financeiro do FMAS (Funpapa/SUASweb) para execução – 2006 a 2017. Para os demais anos que ficam a abaixo na execução das despesas (2006, 2008, 2011, 2012, 2013, 2014, 2015) a média de execução é de 77,34%, variando entre 50,6% em 2013 e 93,2% em 2015. Tais índices demonstram um subaproveitamento de 1/3 (um terço) do valor cofinanciado por Belém destinados aos serviços de Assistência Social. Valores que não apareceram na reprogramação para anos posteriores nos Demonstrativos Físico-Financeiros da Funpapa, como aparecem para os repasses não executados oriundos da União (via FNAS). O que aparentemente desobedece ao art. 73 da Lei 4320/64 onde afirma que “salvo determinação em contrário da lei que o institui, o saldo positivo do fundo especial aperado em balanço será transferido para o exercício seguinte, a crédito do mesmo fundo”. São recursos reaplicados, provavelmente, em outras despesas municipais do mesmo exercício ou tomadas como parte dos resultados primários do orçamento. Nenhuma das duas hipóteses pôde ser provada analisando apenas os instrumentos orçamentários, ficando além dos objetivos dessa pesquisa, mas ensejando uma importante preocupação que diz respeito ao desvio de finalidades dos recursos, alimentada pela negligência com a esta política pública e baixa capacidade de planejamento e gestão dos recursos.Segundo Bassi (2019), os Fundos Especiais tal como o FMAS, com a modernização da administração financeira das contas do tesouro e a política de austeridade fiscal expressas na Lei de Responsabilidade Fiscal (Lei 101/2000) e outras, perderam força como instrumento de vinculação e não mais garantem a integridade dos recursos. Tais legislações abriram brechas no ordenamento jurídico sobre finanças públicas, excluindo os fundos especiais das exceções previstas quando da exigência de contingenciamento de gastos.Os fundos especiais não se constituem em uma blindagem às regras fiscais vigentes. Sendo assim, também se submetem ao contingenciamento de despesas, de modo a enquadrar o orçamento anual tanto à meta de resultado (Resultado Primário) como à meta de gastos (ibidem, p. 24).O autor menciona outras formas de desvios orçamentário que fagocitam os Fundos Públicos especiais, como o emprego de Reservas de Contingência para gastos suplementares no orçamento que, apesar de serem utilizados apenas com autorização do legislativo, incrementam o poder político e discricionariedade do executivo em cortar recursos das políticassociais. O resultado primário positivo e reservas de contingência são, segundo Bassi (2019,) instrumentos pensados para contornar a norma constitucional que orienta o emprego do orçamento da Seguridade Social exclusivamente para as políticas de Seguridade Social, desviando o Fundo Público para outras áreas do orçamento como amortizações, arrolagens e pagamentos de juros da dívida pública. Sendo, estes, fortes indícios do que Salvador (2012, 2015, 2017), Behring (2012) e Boschetti & Salvador (2006) nomeiam como Financeirização das Políticas de Seguridade Social, potencializadas com o receituário neoliberal empregado pós-constituição.Quando passamos à cota-parte da união (Tabela 2) cujo montante representa em média 70,8% do cofinanciamento do FMAS, a situação apresenta-se mais preocupante ainda, pois detém uma execução em média de 58,34%. Embora esses valores, diferente da cota-parte municipal, permaneçam no FMAS, sendo reprogramados para anos posteriores, sua reduzida taxa de execução demonstra a baixa capacidade de planejamento e gestão dos recursos diante de um déficit histórico de Assistência Social e de uma demanda crescente por esses atendimentos. Esse déficit na execução também faz reduzir os repasses posteriores da União, já que indicam contabilmente que não estão sendo necessários.A baixa capacidade de planejamento e gestão, aliás, é a terceira razão que Bassi (2019) ressalta, como explicação da não execução do que foi orçado. Esta hipótese é muito difícil de comprovar-se apenas pela análise de orçamentos, sendo necessário comparações entre planejamentos e as execuções da secretaria de finanças, que fogem ao escopo deste trabalho.Os números do cofinanciamento do Estado (Tabela 3), aferidos do demonstrativo sintético anual de execução físico financeiras (FUNPAPA), por sua vez, atestam sua contribuição ao FMAS a partir de 2014, com ínfimos R$ 24.390,45, embora tenha rubrica registrada no orçamento (LOA) só a partir de 2016. Três coisas se destacam desses dados: 1 - a manifesta incongruência entre fonte de dados quanto o ano de início do repasse; 2 - o baixo volume de previsão de despesas; e 3 - a baixa execução para 2016 e 2017 quando obtemos a média de 29,3%, um montante bem abaixo do já muito baixo recurso orçado.TABELA 03 – Despesas (LOA) e Execução (Funpapa) do FMAS – Estado – 2006 a 2017 – Corrigidos pelo IPCA para 2017. (Valores em R$).2014201520162017DESPESAS (LOA)00,0000,00335.170,00324.600,00EXECUÇÃO(Funpapa)24.390,454.624,3291.871,15101.348,03%--27,4%31,2%Elaboração do autor. Fonte: Leis Orçamentárias Anuais 2006 a 2017 (Receitas) e Demonstrativos Físico Financeiro do FMAS (Funpapa/SUASweb).Como anteriormente mencionado os Estados, a exemplo do Pará, secundarizam o investimento em Assistência Social, cuja participação prevê papel específico. Segundo Mesquita, Martins & Cruz (2012), este fenômeno é observável em todo o Brasil com ligeiras variações, estando, no entanto, a Região Norte entre os piores índices de cofinanciamento estadual para os municípios.A participação dos recursos estaduais nos FMAS variou entre 0% e 11% em 2009. O melhor desemprenho desta participação encontra-se na região sudeste, onde a participação de recursos do FEAS no financiamento dos serviços socioassistenciais varia entre 6% a 11%. Porém, o cofinanciamento estadual esteve praticamente ausente nos municípios do Norte, Nordeste e Sul do país (Ibidem, p. 45).O que notamos desta averiguação do FMAS foi um deliberado desfinanciamento dos serviços socioassistenciais que decresceu 17,7% no geral (destacando-se o município que reduziu 35% de seu repasse ao FMAS) e o enfraquecimento da PMAS nos 12 anos analisados. Curiosamente os Planos Municipais de Assistência Social de Belém disponíveis (2007-2009 e 2014-2017), que legalmente deveriam orientar o planejamento e a execução, não tratam o tema do financiamento como eixo estratégico, limitando-se a informar os montantes planejados previamente pela gestão municipal, sem especificar diretrizes que resguardem os investimentos e sua evolução de acordo com a PMAS e as necessidades demandadas pela população.Com o decrescimento no cofinanciamento do FMAS abre-se o caminho para a estagnação e/ou redução dos serviços socioassistencias no município como observado no relatório de gestão da Funpapa (2005-2012) que mostrou a abertura em 2010 do último dos 12 Centro de Referência de Assistência Social (CRAS), embora haja, segundo Diagnóstico Socioterritorial de Belém (Funpapa, 2017) a demanda por 29 dessas unidades que são a porta de entrada do SUAS e instrumento de prevenção de riscos e vulnerabilidades sociais nos territórios.Observa-se que, para o município de Belém, por ser de Porte 3 – Metrópole (mais de 900.000 habitantes), as diretrizes nacionais estabelecem a exigência de um CRAS para 5.000 famílias referenciadas sendo que, considerando a existência segundo o IBGE 2010, de 143.356 famílias em condições de vulnerabilidade social, Belém necessitaria de um total de 29 CRAS, havendo, portanto, a necessidade de implantação de mais 17 (Funpapa, 2017. p.59).Uma defasagem preocupante, ainda mais quando olhamos os índices de renda per capita (IDHM) e pobreza multidimensional (IPM) do município de Belém colocando-a entre as últimos capitais e grandes cidades em termos de desenvolvimento humano. Fato também observado nas taxas de inclusão de famílias no Cadastro Único para Programas Sociais (Cadúnico) para Belém entre 2006 e 2017 (tabela 04), cujo crescimento foi de 160,13% (Tabela 04). Ou seja, mais que o dobro de famílias candidatas aos programas sociais na cidade, enquanto houve um decrescimento de investimentos no FMAS dos três níveis de Estado.TABELA 04- Evolução dos registros no Cadúnico, PBF e BPC em Belém – entre 2006 e 2017.200620072008200920102011CADÚNICO(Família)71.63175.72485.13689.799106.571116.686PBF (Família)65.72765.46667.12877.68681.27084.201BPC (indivíduos)32.67437.02039.89143.22645.83147.512201220132014201520162017VariaçãoCADÚNICO(Família)127.790139.502160.861157.568165.420186.333160,13%PBF (Família)85.85393.755101.226111.324113.138113.68972,97%BPC (indivíduos)46.53747.89649.86252.61853.97054.82767,80%Elaboração do autor, a partir de dados do CECAD 2.0 - Consulta, Seleção e Extração de Informações do CadÚnico, no site do Ministério da Cidadania.Considerações finaisO Fundo Público é hoje um dos principais elementos políticos e econômicos da sociedade. Está representado num amplo rol de ações e omissões do Estado na aplicação de suas políticas públicas. Estudá-lo a partir de uma perspectiva crítica, nos possibilita maior compreensão desse fenômeno, qualificando a luta política e ideológica travada na sociedade. A história da Assistência Social, como das demais políticas sociais, não pode ser contada e analisada sem nos referirmos a este elemento central da sua estruturação e vigência. Os estados sociais que emergiram no século XX, só puderam existir, como destaca Salvador (2010), quando houve uma tributação robusta e rigorosa, que conferisse solidez a formação e distribuição do Fundo Público.Assim também foi no Brasil no período desenvolvimentista entre as décadas de 1930 a 1980, onde o Estado foi protagonista no processo de industrialização, urbanização e implantação de Políticas Sociais, fortalecendo seu Fundo Público através de uma estrutura tributária que avançou sobre as rendas e os lucros de pessoas físicas e empresas, além dos empréstimos externos e o uso da empresa pública (Draibe, 2004).Hoje a Assistência Social que tentamos interpretar é uma das manifestações do Fundo Público e fruto de uma construção histórica, que expressa na contemporaneidade disputas políticas e econômicas trazidas do passado, atualizada com problemas do presente e do futuro. É fruto da luta de classes, da exigência de reparação às mazelas sociais do capitalismo que explora o trabalho – e descarta sistematicamente aqueles que não lhes são úteis –, mas também da necessidade de contenção da força política da classe trabalhadora.No Brasil, a partir da década de 1990, a Assistência Social estará sobre novas diretrizes com sua inserção na Constituição Federal de 1988 e aprovação da LOAS em 1993. Ao mesmo tempo em que se instalará de forma estrutural o novo paradigma neoliberal que tem como um de seus pressupostos a apropriação do Fundo Público. Os ajustes fiscais passaram a ser a regra do jogo (Behring, 2021) e com seu insidioso poder de apropriação vai corroendo, com artimanhas jurídicas e fiscais, os recursos destinados as políticas sociais.Os municípios são elo final, em termos de Estado, em que esses mecanismos se reproduzem e afetam as políticas públicas locais. Em Belém o Fundo Especial da Assistência Social é diretamente influenciado, dado: 1 – a descentralização do cofinanciamento e da gestão, tendo seu orçamento composto em 1/3 por repasses federais através do FMAS; 2 – Os gatilhos impostos pela Lei de Responsabilidade Fiscal, reservando parte do Fundo Público para amortização e rolagem da dívida pública.O objetivo desse estudo foi lançar luz sobre o comportamento dos recursos destinados a Assistência Social e sua gestão durante o período considerado, que coincide com a implantação do SUAS no município. E identificar padrões e tendências no financiamento, mais especificamente dos gastos. Observamos um subfinanciamento diante da demanda e do que prevê as normativas do SUAS implicando num déficit de unidades de Proteção Básica e Especial. Com um declínio de cofinanciamento pelas três esferas de governo, com destaque para o município, que teve a maior redução, mesmo que seu repasse seja muito menor que a cota-parte da União. O que percebemos foi uma disputa entre as normativas do presente e as práticas do passado, envolvidas num cenário de usurpação do Fundo Público via intervenção do próprio Estado.A nova condição de política de Seguridade Social, fez da Assistência Social uma promessa como ação pública sistemática, integrando a rede de serviços sociais pensada para mitigação da questão social gerada, principalmente, na exclusão pelo trabalho. As disputas pela concepção de Assistência Social estão atualizadas e expressas no formato da nova estrutura, embora saiamos os avanços que representaram a implantação do SUAS. Portanto, investigá-la sob o entendimento da economia política do capital em sua fase neoliberal nos permite entender os liames do seu possível desenvolvimento, localizar corretamente as disputas sobre sua concepção e pensar as estratégias de resistência.Neste trabalho pretendemos colaborar com esse propósito, ainda que com os limites observáveis. Ficaremos satisfeitos se contribuirmos para compreensão da Assistência Social e seu financiamento no município, cujo embaralhamento (proposital ou não) nos impede de enxergar corretamente as soluções que levem em consideração os direitos humanos. E ajude a embasar os atores políticos, trabalhadores, usuários e gestores, a reorientarem o caminho de consolidação desta Política Pública tão importante para justiça social e para a democracia.Sites visitados uniãoCECAD 2.0 - Ministério da Cidadaniahttps://aplicacoes.mds.gov.br/sagi/cecad20/agregado/resumovariavelCecad.php?uf_ibge=15& nome_estado=PA+-+Par%C3%A1&p_ibge=1501402&nome_municipio=Bel%C3%A9m&id=79SUASWEB - Ministério da Cidadania Sistemas de Autenticação e Autorização (SAA) https://aplicacoes.mds.gov.br/saa-webGlossário do Portal da Transparência http://www.portaltransparencia.gov.br/glossarioCalculadora do IBGE para atualização da inflação/IPCA : https://www.ibge.gov.br/explica/inflacao.phpPesquisa Nacional por Amostra de Domicílios – PNAD (IBGE)https://www.ibge.gov.br/estatisticas/sociais/educacao/9127-pesquisa-nacional-por-amostra- de-domicilios.html?=&t=o-que-ePanorama das Cidades (IBGE) https://cidades.ibge.gov.br/brasil/pa/belem/panoramaMunicípioPrefeitura => http://www.belem.pa.gov.br/app/c2ms/v/index.php?id=2&conteudo=3351 Para LOA 2006, 2007, 2008.Prefeitura => Portal da Transparência => Planejamento e Gestão Fiscal=> Lei Orçamentária Anual http://www.belem.pa.gov.br/transparencia/?page_id=605Para LOA 2010, 2011, 2012, 2013, 2014, 2015, 2016, 2017.Resumo Resumido de Execução Orçamentária (RREO) 2012 a 2017 http://www.belem.pa.gov.br/transparencia/?page_id=886#1495121549153-3ad4ab7e-23aeAvulsosAtlas do desenvolvimento humano no Brasil http://www.atlasbrasil.org.br/Programa das Nações Unidas para o Desenvolvimentohttps://www.br.undp.org/content/brazil/pt/home.htmlReferências normativas e documentos institucionaisBELÉM. Lei 7857/1997 - Dispõe sobre a política municipal de assistência social, criação do conselho e do fundo municipal de assistência social de Belém.BELÉM. Lei 7984/99 - dispõe sobre o plano de seguridade social dos servidores do município de Belém, e dá outras providênciasFUNPAPA. Diagnóstico Socioterritorial de Belém: um olhar sobre o município e as territorialidades do CRAS. Vigilância Socioassistencial (SEVISA). – Belém, 2017 (Mimeo)_____. Relatório Anual de Gestão 2005 a 2012. Núcleo Setorial de Planejamento (NUSP). - Belém 2012._____. Relatório Anual de Gestão 2013 a 2019. Núcleo Setorial de Planejamento (NUSP). –Belém 2019.BRASIL. Conselho Nacional de Assistência Social. Resolução n.130, de 15 de Julho de 2005. Aprova a Norma Operacional Básica da Assistência Social (NOB/SUAS)_____. Conselho Nacional de Assistência Social. Resolução n.33 de 12 dezembro de 2012. Aprova a [Nova] Norma Operacional Básica da Assistência Social (NOB/SUAS)_____. Constituição da República Federativa do Brasil de 1988. Brasília, 1990._____Decreto n. 1.605, de 25 de agosto de 1995. Regulamenta o Fundo Nacional de Assistência Social, instituído pela lei n. 8742 de 7 de dezembro de 1993. Diário Oficial da União, Brasília, 28 de ago.1995BRASIL. Lei n. 8742, de 07 de dezembro de 1993. Dispões sobre a organização da Assistência Social e dá outras providências. Diário Oficial da União, Brasília, 23 jan. 1995._____. Lei 4320, de 17 de março de 1964. Estatui Normas Gerais de Direito Financeiro para elaboração e controle dos orçamentos e balanços da União, dos Estados, dos municípios e do Distrito Federal. Diário Oficial da União, Brasília, 23 de mar.1964Brasil. Ministério do Planejamento, Desenvolvimento e Gestão. Secretaria de Orçamento Federal. Manual técnico de orçamento MTO. Edição 2017. Brasília, 2016.BibliografiaBASSI, Camillo de Moraes. Fundos especiais e políticas públicas: uma discussão sobre a fragilização do mecanismo de financiamento. Rio de Janeiro: IPEA, março de 2019. Texto para discussão n. 2458.BEHRING, Elaine. Crise do capital, fundo público e valor. In: Boschetti, Ivanete et al (org.). Capitalismo em crise: política social e direitos. São Paulo: Cortez, 2010.BEHRING, Elaine. Rotação do Capital e crise: fundamentos para compreender o fundo público e a política social. In: Salvador, Evilásio Et al (org.). Financeirização, fundo público e política social. São Paulo: Cortez. 2012. p. 153 – 180.BEHRING, Elaine. Fundo Público, Valor e Política Social. – 1. ed. – São Paulo: Cortez. 2021.BOSCHETTI, Ivanete. Seguridade social e trabalho: paradoxo na construção das políticas de previdência e assistência social o Brasil. Brasília: Ed. Unb, 2008.BOSCHETTI, Ivanete. Assistência social e trabalho no capitalismo. São Paulo: Cortez. 2016.BOSCHETTI, Ivanete; SALVADOR, Evilásio. Orçamento da Seguridade Social e política econômica. Revista Serviço Social e Sociedade, São Paulo, Editora Cortez, Ano XXVII, n. 87, set. 2006.CARNEIRO, Annova M. F., VIEIRA, Margarete C., ARAÚJO, Maria do S. S. de. Qualificando a Política de Assistência Social nos estados do Pará, Maranhão e Ceará e nos municípios da amostra da pesquisa empírica. In: SILVA, Maria Ozanira da S. e (Coord.). O Sistema Único de Assistência Social (SUAS) no Norte e Nordeste: realidades e perspectivas. – São Paulo: Cortez, 2019.COLIN, Denise R. A. Sistema de gestão e financiamento da Assistência Social: transitando entre a filantropia e a política pública. Tese (Doutorado) – Departamento de Ciências Sociais, UFPR, Curitiba, 2008.COSTA, Leonardo. Uma visão sistémica dos fundos federais. Brasília, DF: STN, 2012. (Texto para discussão, n. 7).COURI, Joseane R.. As dimensões do financiamento da política de Assistência Social no Período de 2003 a 2013: um balanço pelas dimensões tributárias, de gestão e do gasto público. Dissertação (Mestrado em Política Social) – Universidade de Brasília, 2014.COUTO, Berenice R. O Direito Social e a Assistência Social na sociedade brasileira: uma equação possível? 4ª ed. São Paulo: Cortez, 2010.COUTO, Berenice R. et al . A Política Nacional de Assistência Social e o SUAS: apresentando e problematizando fundamentos e conceitos. In: Couto, Berenice R. et al (orgs). O Sistema Único de Assistência Social: uma realidade em movimento. São Paulo: Cortez. 2017. p. 61 – 94. CRUZ, Sandra H. R.. Municipalização e financiamento da Assistência Social: notas sobre a experiência de Belém (PA). In: NEVES, Rosa H. N. et al (org). A reinvenção do social: poder popular e política de assistência em Belém. Belém: Paka Tatu 2004. P. 61 – 78.DRIBE, Sônia M. Rumos e Metamorfoses: Estado e industrialização no Brasil, 1930 a 1960. Rio de Janeiro: Paz e Terra, 2004.IANONI, Marcus. Teoria do Estado Desenvolvimentista: uma revisão da literatura. In: Revista Sinais Sociais. v.09, n.24. p. 81-105. Jan – abril, 2014.IANNI, Octavio. Estado e Planejamento Econômico no Brasil (1930 – 1970). 3ª Ed. – Rio de Janeiro: Civilização Brasileira, 1979.MESQUITA, Ana; MARTINS, Raquel de Fátima; CRUZ, Tânia. Cofinanciamento e reponsabilidade federativa na política de Assistência Social. Brasília: IPEA, março de 2012. Texto para discussão n. 1724.NASCIMENTO, Antonia C., CRUZ, Sandra H. R., PONTES, Reinaldo N. A implementação do SUAS no estado do Pará: realidade e especificidade da região Norte. In: SILVA, Maria Ozanira da S. e (Coord.). O Sistema Único de Assistência Social (SUAS) no Norte e Nordeste: realidades e perspectivas. – São Paulo: Cortez, 2019.OLIVEIRA, Fabricio A. Economia e Política das finanças públicas no Brasil: um guia de leitura. – São Paulo: Hucitec, 2009.OLIVEIRA, Francisco de. Fundo Público – Verbete. In: GIOVANNI, Geraldo Di; NOGUEIRA, Marco Aurélio (org.). Dicionário de Políticas Públicas. 2º ed. São Paulo: Editora da UNESP; Fundap, 2015.OLIVEIRA, Francisco de. Os direitos do anti-valor: a economia política da hegemonia imperfeita. Petrópolis, RJ: Ed. Vozes, 1998.PERISSINOTTO, Renato. O conceito de Estado Desenvolvimentista e sua utilidade para os casos brasileiros e argentino. In: Revista de Sociologia e Política, v.22, n.52. p. 59-75. Dez, 2014.PIKETTY, Thomas. O capital no século XXI. Trad. Monica Baumgarten de Bolle. 1ª ed. Rio de Janeiro: Ed. Intrínseca, 2014.POULANTZAS, Nicos. O Estado, o poder, o socialismo. Trad. Rita Lima. São Paulo: Paz e Terra, 4ª ed. 2000.SALVADOR, Evilasio da Silva. Financiamento tributário da política social no pós-Real. In: Behring, Elaine; Boschetti, Ivanete; Granemann, Sara (org). Financeirização, fundo público e política social. São Paulo: Cortez. 2012. P. 123- 152.SALVADOR, Evilasio da Silva. Fundo Público e seguridade social no Brasil. São Paulo: Cortez, 2010. SALVADOR, Evilasio da Silva. O desmonte do financiamento da seguridade social em contexto de ajuste fiscal. Serv. Soc. Soc., São Paulo, n. 130, p. 426-446, dez. 2017.SALVADOR, Evilasio da Silva; Gomes, Osmar. Finanças, fundo público e financiamento da seguridade social no Brasil. Revista Katálisys, Florianópolis, v.18, n. 2, p. 239-248, jul./dez, 2015.SALVADOR, Evilasio da Silva; TEXEIRA, Sandra Oliveira. Orçamento e políticas sociais: metodologia de análises na perspectiva crítica. Revista de Políticas Públicas, São Luiz, v 18, n1 p. 15 – 32. jan./jun. 2014.SALVADOR, Evilasio da Silva. Cofinanciamento das Políticas Sociais no contexto do federalismo brasileiro do sec. XXI. In: Serviço Social em Revista. Londrina, v.17, n.1, p. 178 a 203. 2014.SANTOS, Josiane Soares. “Questão Social”: particularidades no Brasil. Coleção Biblioteca Básica de Serviço Social São Paulo: Cortez, 2012SPOSATI, Aldaíza. 20 anos de LOAS: a ruptura com o modelo assistencialista. In: CRUS, José F. da, [et al] 20 anos da Lei Orgânica da Assistência Social. Brasília: MDS, 2013. p. 20 – 41. Este artigo é resultado dos estudos realizados em minha dissertação de mestrado, apresentado em agosto de 2021 ao Programa de Pós-Graduação em Serviço Social (PPGSS) da Universidade Federal do Pará (UFPA).* Assistente Social, Mestrando do Programa de Pós-graduação em Serviço Social (PPGSS-UFPA); Assistente Social do Instituto de Assistência à Saúde e Social dos Servidores Públicos de Belém (IASB). Fundo Nacional de Assistência Social (FNAS), Fundos Estaduais de Assistência Social (FEAS) e Fundos Municipais de Assistência Social (FMAS). Salvador (2010) apresenta dados compilados na obra Beyond the Welfare State de Christopher Pierson (1998) que demonstram que dos 13 países europeus no século XIX, 11 apresentavam legislações que complementavam a renda de trabalhadores antes da virada para o Século XX. O que representa embriões de Estados Sociais posteriormente desenvolvidos. Piketty (2014, p. 463) apresenta em seu livro O Capital no séc. XXI a evolução das receitas fiscais, de 1870 a 2010, de 4 países com distintas trajetórias históricas entre os mais ricos (Suécia, França, Reino Unido e Estados Unidos) e demonstra a relativa proximidade entre estes na evolução de suas receitas fiscais. “A primeira semelhança é que os impostos representam menos de 10% da renda nacional em todos os países no séc. XIX até a Primeira Guerra Mundial. (...) A partir dos anos 1920-1930 e até os anos 1970-1980, assistimos a um crescimento considerável [3 a 4 vezes] da participação dos impostos e das despesas públicas (e, particularmente, das despesas sociais) na renda nacional”. Até a estabilização de 1980 a 2010 em níveis diferentes: 30% da renda nacional para Estados Unidos, 40% no Reino Unido, 50% na França e 55% na Suécia. Para este debate ver Oliveira (1998), Behring (2010; 2012; 2021), Bretas (2012), Salvador (2010). Outras características do desenvolvimentismo segundo Ianoni (2014) são: 1 - a existência de instituições estatais ou paraestatais (Comissões, Comitês, Agências) que conduzem o projeto de desenvolvimento, orientados por uma burocracia estatal especializada e de carreira; 2 - industrialização retardatária de renda média e com componentes tecnológicos aquém da fronteira tecnológica; 3 - a presença de uma ideologia nacionalista que unifique os diferentes grupos sociais e legitime o Estado; e 4 - a busca de equiparação tecnológica e de renda com países de capitalismo desenvolvidos (catching-up). Outras medidas menos estruturadas surgiram no campo da assistência social paralelamente, como o Serviço de Assistência ao Menor (SAM) em 1941 (Behring & Boschetti, 2011). Reunião realizada em novembro de 1989 entre os presidentes eleitos da América Latina e os representantes do Banco Mundial, Fundo Monetário Internacional e Banco Interamericano de Desenvolvimento, que entre as reformas de cunho neoliberal prevê a realização de reformas estruturais para a estabilização da economia como as privatizações, a desregulamentação dos mercados, a descentralização e a retomada do desenvolvimento. Lei 8742 de 07 de dezembro de 1993 – Dispõe sobre a organização da Assistência Social e dá outras providências. O projeto rejeitado era o PL 3099/89, de iniciativa do deputado Raimundo Bezerra e com formato final dado pelo relator Nelson Seixas, ambos do PSDB, que regulava a assistência social. Costa (2012) explica que não há uma homogeneidade na conceituação de Fundos nas normas e na literatura especializada, podendo ser encontrados definições com viés orçamentário (presente na lei 4320/64), contábil e de direito financeiro, contendo ainda subdivisões quanto suas finalidades. O autor destaca ainda uma divisão feita pelo decreto 93.872/86 (trata da Unificação dos Recursos de Caixa do Tesouro Nacional) tentando consolidar duas compreensões de Fundo Especial, um de natureza contábil e outro de natureza financeira. Lei que estatui as regras de direito financeiro para elaboração dos orçamentos da União, Estaduais e municipais e seus balanços. Esta foi recepcionada pela Constituição Federal de 1988, cujo objetivo foi utilizá-la até a modernização com uma nova legislação que, no entanto, até hoje não aconteceu. Embora em alguns casos específicos possa ser utilizado para pagamento de Recursos Humanos. Dispõe sobre a política municipal de assistência social, criação do conselho e do fundo municipal de assistência social de Belém. Atualizada pela lei 9194/2019, implementando o Sistema Único de Assistência Social do Município de Belém, porém não utilizada como parâmetro desse estudo dado o período analisado. “Art. 195 - A seguridade social será financiada por toda a sociedade, de forma direta e indireta, nos termos da lei, mediante recursos provenientes dos orçamentos da União, dos Estados, do Distrito Federal e dos Municípios. (CF -1988). EC 29/2000 “que assegura recursos mínimos para o financiamento das ações e serviços públicos de saúde, regulamentada em 2011 e que levou a maior participação dos estados e municípios no custeio da saúde” (Salvador, 2014. P. 187). FUNDEB (Lei 11.494/2007) – Fundo de manutenção e desenvolvimento da Educação básica e de valorização dos profissionais da educação. Posteriormente complementada com a Lei 12.435/2011 que incluiu nesta o Sistema Único de Assistência Social e toda sua estrutura de Gestão e Financiamento. Autores que identificam esta característica em diferentes estudos para grandes cidades: Colin (2008); Salvador (2010); Couto et al (2011); Mesquita, Martins e Cruz (2012); Carneiro, Vieira, Araújo (2019); Nascimento, Cruz & Pontes (2019). A classificação de porte de município utilizada pela PNAS é a seguinte: Pequeno I (até 20.000 hab.), Pequeno II (de 20.001 até 50.000 hab.), Médio (de 50.001 até 100.000 hab.), Grande (de 100.001 até 900.000 hab.), Metrópole (mais de 900.000 hab.), (PNAS, 2004). Recomendação já feita pela V Conferência Nacional de Assistência Social em 2005 cujo proposta de financiamento partiria de 5% a curto prazo até 10% em longo prazo. Tal recomendação foi encaminhada via Projeto de Emenda Constitucional 431/01 pelos Deputados Eduardo Barbosa, Ângela Guadagnin e outros. Resultado Primário: saldo entre receitas e despesas primárias (MTO,2007). Representa a economia fiscal que o governo se disporá a alcançar, o esforço do gestor com o objetivo de amortizar a dívida pública. Não foi disponibilizado pela Funpapa o Plano Municipal de Assistência Social referente ao Período de 2010 a 2013. Segundo Núcleo Setorial de Planejamento (NUSP) da Instituição não houve Plano Municipal Durante esse período. Fato surpreendente, confirmado pelo Conselho Municipal de Assistência Social, posto que o Plano é um instrumento condicionante para repasses dos recursos do Fundo Nacional de Assistência Social. A fragilidade técnica e política do Conselho Municipal de Assistência Social também é um fator importante para entender essa dinâmica da falta de efetividade do controle social na elaboração e acompanhamento do financiamento da Assistência Social em Belém. O que demonstra a pouca efetividade dos planos de Assistência Social, no que diz respeito ao financiamento, acabando por se tornarem apenas documentos de intenção e não diretrizes para condução da Assistência Social no Município, como estabelece a normativa da PNAS e do SUAS. egundo Atlas do Desenvolvimento Humano do Brasil (2017) Belém têm um IDH-M 0,746, numa escala que vai de 0 a 1, o que para padrões do Índice é considerado alto. Contudo por representar uma média, não é capaz de expressar as desigualdades multidimensionais e perenes do município. adúnico foi um cadastro criado pelo governo federal para formar um banco de dados sobre pobreza e extrema pobreza no país. Foi criado por meio de decreto 9364/2001, se consolidando como ferramenta a partir da implantação de do Programa Bolsa Famílias (PBF) em 2003.Zaraia Guará Ferreira -185293127657420-127012319000Financiamento da assistência social em Belém: um estudo sobre fundo municipal entre 2006 e 2017482340127657420-569885090005016511366500223223-3736381ARTIGO020000ARTIGO1733555343525PAGE \* MERGEFORMAT200PAGE \* MERGEFORMAT2-10795024130Revista Libertas, Juiz de Fora, v. 22, n.1, p. 156-178, jan. / jun. 2022 ISSN 1980-851800Revista Libertas, Juiz de Fora, v. 22, n.1, p. 156-178, jan. / jun. 2022 ISSN 1980-85180-14605006906895-3663760ARTIGO020000ARTIGO2325-3238500-128905-31750Revista Libertas, Juiz de Fora, v. 22, n.1, p. 156-178, jan. / jun. 2022 ISSN 1980-851800Revista Libertas, Juiz de Fora, v. 22, n.1, p. 156-178, jan. / jun. 2022 ISSN 1980-85181976975333577PAGE \* MERGEFORMAT200PAGE \* MERGEFORMAT2-231013011450320DOSSIÊ00DOSSIÊ-62230-95250900430457200PAGE \* MERGEFORMAT200PAGE \* MERGEFORMAT2DOI 10.34019/1980-8518.2022.v22.35236 -222253350800 Revista Libertas, Juiz de Fora, v. 22, n.1, p. 156-178, jan. / jun. 2022 ISSN 1980-8518iVBORw0KGgoAAAANSUhEUgAAAlEAAABZCAIAAACR0ubNAAAAAXNSR0IArs4c6QAARYJJREFUeF7t nQe8XUW1/3OTe29Ck6o+2qOjgAgPVELVR7UgSHkKUkJREASBiOID/4gEAorSBQJI76SQABZABAQF KSpIDZ0IamhJSL1J7v+7zy9ZbzGz9z77nFtySeZ8kvPZd5+ZNWvWrJk1a8pvtXR2dvZLnySBJIEk gSSBJIFFQAL9F4E6piomCSQJJAkkCSQJZBJINi/pQZJAkkCSQJLAoiKBFr+2ufEeZy8q9U71TBJI EkgSSBJYlCTw11FHU93Q5ult+iQJJAkkCSQJJAksNBLAo5N1S2ubC02bpookCSQJJAkkCdSRQLJ5 SUWSBJIEkgSSBBYVCSSbt6i0dKpnkkCSQJJAkkCyeUkHkgSSBJIEkgQWFQkkm7eotHSqZ5JAkkCS QJJAsnlJB5IEkgSSBJIEFhUJJJu3qLR0qmeSQJJAkkCSQLJ5PasDn9tq67VXX0P//nDffT1bWKKe JJAkkCSQJFAqgQbupH/uc5+bOnXqRhtt1L9//7a2trlz586cORPigwYNamlp4U+97OjoaG1t5Q3J AHmZM2cOf5Jsxszps+fMmTt3Ds9zO+f2a+nXf0B/vmbPmT17Tkdnv07etQ4YMHdOhnndwi9zOiHS 3tZOoW2t7TNmzPjoRz86adIkqM2ePbtff5K11Ch3zprVQdGUBXG+Ac1ubR1AUZCEDiyRckBLC988 DxjQn28+7e3t8KgqLL744uSGLAQ7OmbP7uyY2wK1Tvjp36//nLlznnryqRWW+/AWW2xxyrBTKmoU 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