BRAZILIAN STATE
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATEAN ANALYSIS OF PUBLIC EMPLOYMENT
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATEAN ANALYSIS OF PUBLIC EMPLOYMENT
Rio de Janeiro, 2016
FGV/DAPP
DirectorMarco Aurelio Ruediger
DAPP+55 (21) 37994300 | www.dapp.fgv.br | [email protected]
Head OfficePraia de Botafogo 190, Rio de Janeiro | RJ, CEP 22250-900 ou Caixa Postal 62.591 CEP 22257-970 | Tel: (21) 3799-5498 | www.fgv.br
Founding PresidentLuiz Simões Lopes
PresidentCarlos Ivan Simonsen Leal
Vice-PresidentsSergio Franklin Quintella, Francisco Oswaldo Neves Dornelles e Marcos Cintra Cavalcante de Albuquerque
FGV is an institution with a philanthropic, educational, technical and scientific nature, created on 20 December 1944 as a private entity, whose aim is to act in a broad manner in all questions with a scientific nature, with an emphasis on the social sciences, administration, law, and economy, contributing to the socio-economic development of the country.
TEAM
IMPLEMENTATION TEAMCoordinationMarco Aurelio Ruediger
ResearchersAmaro GrassiMiguel OrrilloRafael Martins de Souza
Graphic projectRebeca Liberatori Braga
BRAZILIAN STATE
THE STRUCTURE OF THE BUREAUCRACY OF THE
BRAZILIAN STATEAN ANALYSIS OF PUBLIC EMPLOYMENT
5 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
The Structure of the Bureaucracy of the Brazilian State is the first study in a series by FGV/DAPP about Brazilian bureaucracy, produced on the basis of data about the various levels and administrative spheres of public employment in Brazil. The aim of this series of studies is to shed some light on the public service in the three levels of the Federation and also among the three powers, offering contributions to the debate about the size of the Brazilian state and the quality of the services provided by this bureaucratic body, in a comparative perspective with the rest of the world. It is thus intended to seek responses to the most recurrent concerns in the Brazilian public debate, above all at a moment when discussions about reforms in the Brazilian state and its bureaucracy have returned to center stage.
Among the results found in this first stage of the research, one that most stood out was related to the role of municipalities within the federative pact currently in force in Brazil. According to the survey, the number of municipal employment positions grew by 210% between 1998 and 2014, tripling the total employees at this level. Per capita annual expenditure (how much each Brazilian pays to maintain this structure) rose from R$216 to R$671. This growth is a reflection, amongst other things, of the municipalization of services stipulated in the 1988 Constitution, highlighting an overload of responsibilities at the tip of the federative structure. In this context, municipalities are induced to hire more public employees in order to meet the growing demand of society for high quality public services, but pay badly due to their reduced fiscal capacity in comparison with the other governmental spheres.
Finally, the study makes a comparison between the number of municipal public employees per thousand inhabitants in every Brazilian state capital. There is also a special focus on the city of Rio de Janeiro, especially the comparison of data on personnel expenditure with the other Brazilian state capitals. The data was published at the beginning of September 2016 in “O Globo” as part of a partnership between FGV/DAPP and the newspaper to cover the municipal elections.
OVERVIEW
6|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Federal MunicipalState
ServidoresPúblicos-Brasil
5.0
5.5
6.0
6.5
7.0
7.5
8.0
8.5
9.0
9.5
1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Brasil
mili
on
NíveisdeAdministraçãoPública
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
4.5
5.0
1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Federal Estadual Municipal
mili
on
This section, the first of this study, shows the evolution of public employment between 1998 and 2014, based on data from RAIS, which is part of the Ministry of Labor. Presented in the figures below is data about the number of general public employees and per administrative level (federative entity).
The charts below show the growth in the amount of public employees in Brazil between 1998 and 2014. During this period, there was an increase of 71.6% in the number of public employees in Brazil. Municipalities had the steepest rise (around 210%), almost tripling in size.
EVOLUTION OF PUBLIC EMPLOYMENT
Number of employees(1998-2014)
Source: MTE/RAIS(1998-2014)Prepared by: FGV/DAPP
Public Employees – Brazil
Levels of Public Administration
7 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
Federal MunicipalState
ServidoresPúblicos-Brasil
26
28
30
32
34
36
38
40
42
44
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
ServidoresPúblicos-Brasil
thou
sand
NíveisdeAdministraçãoPública
10
20
30
40
50
60
70
80
90
100
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Federal Estadual Municipal
thou
sand
The following figures show the development of annual average earnings (payment) per position. It can be seen that in Brazil, as a whole, there was an increase in the average earnings of public employees after 2003, reaching the level of R$43,500 in 2014. According to the survey, federal employees are the best paid, while municipal receive the lowest earnings.
Annual earnings per position (1998-2014)
Source: MTE/ RAIS(1999-2014)Prepared by: FGV/DAPP
Public Employees – Brazil
Levels of Public Administration
8|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Federal MunicipalState
NíveisdeAdministraçãoPública
30
40
50
60
70
80
90
100
110
120
130
140
150
160
170
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Federal Estadual Municipal
bilio
n
ServidoresPúblicos-Brasil
140
160
180
200
220
240
260
280
300
320
340
360
380
400
1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
ServidoresPúblicos-Brasil
bilio
n
Over the years, annual expenditure on wages increased at all levels of public administration, in all regions of the country, and in the three spheres of federal public administration. The figures below show the growth of this expenditure. Between 1999 and 2014, there was a total increase of around 167% (in real values), rising from R$146.56 billion to R$391.79 billion. In the comparison between the federative bodies, states have the highest expenditure, but municipalities had the highest rate of growth, according to the survey.
Annual expenditure on public employee pay(1999-2014)
Source: MTE/ RAIS(1999-2014)Prepared by: FGV/DAPP
Public Employees – Brazil
Levels of Public Administration
9 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
Federal MunicipalState
ServidoresPúblicos-Brasil
31
32
33
34
35
36
37
38
39
40
41
42
43
44
45
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
ServidoresPúblicos-Brasil
Empl
oym
ent p
ositi
ons
NíveisdeAdministraçãoPública
2
4
6
8
10
12
14
16
18
20
22
24
26
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Federal Estadual Municipal
Empl
oym
ent p
ositi
ons
In the attempt to measure the efficiency of Brazilian public employment between 2000 and 2014, two indexes were analyzed: (a) the distribution of the number of Public Employees among the Brazilian population; (b) annual per capita expenditure with the public machine, in other words, per Brazilian citizen. First, the number of positions per each thousand inhabitants it is examined.
In Brazil, the proportion increased by 41.85% between 2000 and 2014. In relation to administrative levels, the number of municipal employees more than doubled during the same period, reaching 24 employees per thousand inhabitants. State and federal employees had a slower rate of growth over the years.
Employment positions per thousand inhabitants(2000-2014)
Source: MTE/ RAIS(2000-2014) , IBGEPrepared by: FGV/DAPP
Public Employees – Brazil
Levels of Public Administration
10|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Federal MunicipalState
ServidoresPúblicos-Brasil
900
1,000
1,100
1,200
1,300
1,400
1,500
1,600
1,700
1,800
1,900
2,000
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
ServidoresPúblicos-BrasilNíveisdeAdministraçãoPública
200
250
300
350
400
450
500
550
600
650
700
750
800
850
2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
Federal Estadual Municipal
In relation to annual per capita expenditure with public employee payroll, there was growth a higher than 100% between 2000 and 2014, rising from R$932.40 to R$1932.20.
Annual per capita expenditure(2000-2014)
Source: MTE/ RAIS(2000-2014), IBGEPrepared by: FGV/DAPP
Public Employees – Brazil
Levels of Public Administration
11 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
ServidoresPúblicos
75.33%
13.78%
10.89%
Estatutário NãoEfetivo CLT
Municipal
63.86%
17.66%
18.48%
Estatutário NãoEfetivo CLT
Statutory CLTNon-Permanent
The figure below shows that at least three out of four public employees in Brazil are contracted in a statutory system. Municipal administration is the sphere with the lowest percentage of statutory employees (63.9%), and the highest proportion of CLT and non-permanent employees, which suggests that municipal administrators are searching for alternatives to increase services provided.
Contracting systems (2014)
Source: MTE/ RAIS(2014)Prepared by: FGV/DAPP
Public Employees
Municipal
Statutory CLTNon-Permanent
12|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Area
Area
Executivo95.29%
Legislativo2.07%
Autarquias1.64%
Outros0.99%
Executivo Legislativo Autarquias Outros
Administrativespheres
Administrativespheres
Executive95.29%
Legislature2.07%
Agencies1.64%
Others0.99%
Executive Legislature Agencies Others
The second part of the study presents a brief profile of municipal public employees focusing on the city of Rio de Janeiro. Comparative methodology is still used, but now between Brazilian capitals. Firstly, we present the different administrative spheres of Brazilian municipal employees in 2014. As was to be expected, it can be observed that 95.29% of municipal employees are from the Executive. Shortly afterwards, two important variables are presented to compare the Brazilian state capitals: employment positions per thousand inhabitants and average income. This short analysis can also be visualized per region of Brazil. Finally, we trace a profile of the municipal employees in Rio working for the Executive.
MUNICIPAL EMPLOYEE PROFILE
Source: MTE/ RAIS(2014)Prepared by: FGV/DAPP
13 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
PastGDP
JoãoPessoa
Vitória
Palmas
PortoVelho
BoaVista
Goiânia
Cuiabá
SãoLuís
Macapá
Curitiba
Teresina
CampoGrande
Natal
Aracaju
Florianópolis
Maceió
Recife
RiodeJaneiro
BeloHorizonte
Belém
SãoPaulo
RioBranco
Manaus
PortoAlegre
Fortaleza
Salvador
Brasília
0 5 10 15 20 25 30 35 40
38,88
35,35
32,68
26,2
23,46
21,33
21,26
20,83
18,98
18,45
18,36
17,49
16,83
16,52
16,39
15,48
15,25
14,33
13,46
12,44
12,22
11,94
11,41
11,2
10,72
7,47
0
Positions
Norte
Palmas
PortoVelho
BoaVista
Macapá
Belém
RioBranco
Manaus
0 5 10 15 20 25 30 35 40
32,68
26,2
23,46
18,98
12,44
11,94
11,41
Positions
This section reveals the distribution of municipal employees from the Executive in Brazilian state capitals, offering a panorama of public employment in these municipalities. The first figures show the number of employment positions per thousand inhabitants; the second ones, the average earnings of public employees per capital. It can be noted that the city of Rio de Janeiro is the second city in the Southeast region in the number of employment positions per thousand inhabitants. The city of Vitória occupies the highest rank in this index. On the other hand, the employment positions which correspond to these cities are the lowest paid among the cities of the southeast region. The municipal employes in Rio have average earnings of R$3.450,00.
Distribution of municipal employeesPositions per thousand inhabitants - 2014
Source: MTE/ RAIS(2014)Prepared by: FGV/DAPP
Brazil
North
14|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Brasil
PortoAlegre
Florianópolis
SãoPaulo
CampoGrande
BeloHorizonte
Salvador
Curitiba
Fortaleza
Manaus
RiodeJaneiro
Aracaju
Vitória
Teresina
Recife
RioBranco
Maceió
Goiânia
Natal
Palmas
Belém
Macapá
PortoVelho
Cuiabá
SãoLuís
BoaVista
JoãoPessoa
Brasília
0 0.5 1.0 1.5 2.0 2.5 3.0 3.5 4.0 4.5 5.0 5.5
5,97
4,76
4,05
4,04
3,95
3,91
3,82
3,72
3,62
3,45
3,17
3,14
3,14
3,04
2,86
2,85
2,84
2,83
2,80
2,76
2,66
2,62
2,38
2,35
2,03
1,61
0
Norte
Manaus
RioBranco
Palmas
Belém
Macapá
PortoVelho
BoaVista
0 0.5 1.0 1.5 2.0 2.5 3.0 3.5 4.0 4.5 5.0 5.5
3,62
2,86
2,8
2,76
2,66
2,62
2,03
Distribuição de servidores municipaisAverage earnings - 2014
Source: MTE/ RAIS(2014)EPrepared by: FGV/DAPP
Brazil
North
15 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
Nordeste
JoãoPessoa
SãoLuís
Teresina
Natal
Aracaju
Maceió
Recife
Fortaleza
Salvador
0 5 10 15 20 25 30 35 40
38,88
20,83
18,36
16,83
16,52
15,48
15,25
10,72
7,47
Positions
CentroOeste
Goiânia
Cuiabá
CampoGrande
0 5 10 15 20 25 30 35 40
21,33
21,26
17,49
Positions
Sudeste
Vitória
RiodeJaneiro
BeloHorizonte
SãoPaulo
0 5 10 15 20 25 30 35 40
35,35
14,33
13,46
12,22
Positions
Sul
Curitiba
Florianópolis
PortoAlegre
0 5 10 15 20 25 30 35 40
18,45
16,39
11,2
Positions
Source: MTE/ RAIS(2014)Prepared by: FGV/DAPP
Northeast
Center-west
Southeast
South
16|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Nordeste
Salvador
Fortaleza
Aracaju
Teresina
Recife
Maceió
Natal
SãoLuís
JoãoPessoa
0 0.5 1.0 1.5 2.0 2.5 3.0 3.5 4.0 4.5 5.0 5.5
3,91
3,72
3,17
3,14
3,04
2,85
2,83
2,35
1,61
CentroOeste
CampoGrande
Goiânia
Cuiabá
0 0.5 1.0 1.5 2.0 2.5 3.0 3.5 4.0 4.5 5.0 5.5
4,04
2,84
2,38
Sudeste
SãoPaulo
BeloHorizonte
RiodeJaneiro
Vitória
0 0.5 1.0 1.5 2.0 2.5 3.0 3.5 4.0 4.5 5.0 5.5
4,05
3,95
3,45
3,14
Sul
PortoAlegre
Florianópolis
Curitiba
0 0.5 1.0 1.5 2.0 2.5 3.0 3.5 4.0 4.5 5.0 5.5
5,97
4,76
3,82
Source: MTE/ RAIS(2014)Prepared by: FGV/DAPP
Northeast
Center-west
Southeast
South
17 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
Sexo
76.85%
23.15%
Feminino MasculinoEscolaridade
0.34%
1.40%
5.03%
5.59%
5.68%
81.97%
EnsinoMédioIncompleto Atéo5ªanoIncompletodoEnsinoFundamental EnsinoFundamentalCompleto
Do6ªao9ªanoIncompletodoEnsinoFundamental EducaçãoSuperiorIncompleta EducaçãoSuperiorCompleta
Finally, the figures below show the profile of public employees from the Executive in the municipality of Rio de Janeiro, focusing on gender, education, age group, type of contracting, income, and time employed.
Profile of public employees in the municipality of Rio de Janeiro2014
Source: MTE/ RAIS(2014)Prepared by: FGV/DAPP
Gender
Education
Female
Incomplete Second Level
6 – 9 Grade Incomplete Fundamental Education
Complete Fundamental Education
Complete Third Level
Male
Up to 5th Grade Incomplete Fundamental Education
Incomplete Third Level
18|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
Idade
0.94%
16.28%
26.30%
33.80%
22.68%
18|--25 25|--35 35|--45 45|--55 55ou+
Regime
98.32%
1.68%
Estatutário NãoefetivoSource: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
Age
Type of contract
18|--25 35|--4525|--35 45|--55 55 or +
Statutory Non-Permanent
19 | DEPARTMENT OF PUBLIC POLICY ANALYSIS
Faixarenda
10.56%
44.87%
39.60%
3.48%
1.49%
0|--2 2|--4 4|--10 10|--20 20ou+
Tempoemprego
28.16%
11.83%
10.72%
16.04%
7.70%
6.74%
10.90%
7.91%
0|--4 4|--8 8|--12 12|--16 16|--20 20|--24 24|--28 28ou+Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
Average income band (Minimum Wages)
Time in employment (years)
0|--2
0|--4 20|--24
4|--10
8|--12 28 or +
2|--4
4|--8 24|--28
10|--20
12|--16
20 or +
16|--20
20|THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT
The data used in this study is extracted from RAIS (2008-2014) and the principal research unit in a large part of this work is considered to be each employment position active in December of each year. Evidentially, when it was necessary to research the balance of employment positions, we considered the differences between the positions at the start and end of each year. To obtain the population in each region of the study, the IBGE population projection was used.
The monetary values of the historic series were deflated to values of December 2014.
According to the RAIS 2014 manual, adopted as public employees were those workers governed by the Single Judicial Regime (federal, state, and municipal) and the military, linked to the Single Pension System; employees governed by the Single Judicial Regime (federal, state, and municipal) and the military, linked to the General Social Security System, and non-permanent public employees (who can be dismissed ad nutum or who were hired by special legislation, not governed by the CLT). Moreover, the base of our study was restricted to the employees of the three powers (Executive, Legislature, and Judiciary) together with employees from agencies and public foundations (whether subject to public or private law), in the three administrative levels (federal, state, and municipal).
RAIS provides the average income of each position. This variable was used to estimate the annual value spent on each position. For this, average income was multiplied by the number of months worked for each position.
The analysis in this research were carried out using R software.
MTE/RAISYears: 1998 - 2014http://www.rais.gov.br/
IBGEInstituto Brasileiro de Geografia e Estatísticahttp://www.ibge.gov.br/home/ http://www.ibge.gov.br/apps/populacao/projecao/
Central Bank of Brazilhttps://www3.bcb.gov.br/sgspub/localizarseries/localizarSeries.do?method=prepararTelaLocalizarSeries
METHODOLOGICAL NOTES
SOURCES
FGV/DAPPDepartment of Public Policy Analysis | Getulio Vargas Foundation
DIRECTORMarco Aurelio Ruediger
ResearchersAmaro GrassiMiguel Orrillo
Rafael Martins de Souza
TEAM
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