Civil Servants: Tenure, Incentives and Democracy in the Administrative State in Brazil and Latin America

Autores

  • Anna Carolina Migueis Pereira Universidade do Estado do Rio de Janeiro

DOI:

https://doi.org/10.21056/aec.v21i83.1456

Palavras-chave:

civil servants, constitutional democracy, tenure, efficiency, incentives.

Resumo

The present paper aims to investigate the incentives posed by the legal regimen that regulates the civil service in several Latin American countries. The case of Brazil is studied most closely. One of the main features of this system is the existence of broad tenure guarantees which directly affect the way incentives are offered to public officials. The paper discusses the origins and the importance of the tenure system to the administrative state, constitutional democracy and the rule of law in these countries and presents six objectively designed proposals to realign the incentives to which civil servants are subject to without, at least for now, dismantling the tenure system.

Biografia do Autor

  • Anna Carolina Migueis Pereira, Universidade do Estado do Rio de Janeiro
    Doutoranda e Mestre em Direito Público pela Universidade do Estado do Rio de Janeiro. Procuradora do Estado do Rio de Janeiro.

Referências

ABRANCHES, Sérgio. Presidencialismo de coalizão: o dilema institucional brasileiro. Revista de Ciências Sociais, Rio de Janeiro, vol. 31, no 1, 1988.

ACKERMAN, Bruce; ALSTOTT, Anne. The Stakeholder Society. Cambridge: Yale University Press, 2000.

ANDREWS, Christina W.; BARIANI, Edson. Administração Pública no Brasil: breve história política. São Paulo: Editora UNIFESP, 2010.

ARIELY, Dan. The (Honest) Truth About Dishonesty. Harper. International Edition. 2013.

BID. A Decade of Civil Service Reforms in Latin America (2004–13). Washington DC, 2014.

BIGNAMI, Francesca. Comparative Administrative Law. The Cambridge Companion to Comparative Law, eds. Mauro Bussani and Ugo Mattei, Cambridge University Press. 2012. p. 145-170. Available at: <https://ssrn.com/abstract=2171307> Accessed on: 31.mar.2019.

BLACK, Julia. New Institutionalism and Naturalism in Socio-Legal Analysis: institutionalist approaches to regulatory decision making. Law and Policy, v. 19, n. 1, p. 51-93. 1997.

BRESSER-PEREIRA, Luiz Carlos. Da Administração Pública Burocrática à Gerencial. Revista do Serviço Público nº 47. Janeiro-Abril 1996.

BRESSER-PEREIRA, Luiz Carlos. New Public Management Reform: Now in Latin America, and Yet. Programa de Estudos Políticos UERJ. 2001. Available at: <https://pesquisa-eaesp.fgv.br/sites/gvpesquisa.fgv.br/files/arquivos/bresser_-newpublicmgmtreform.pg_.pdf> Accessed on: 17.Feb.2019.

BUCHANAN, James M. Good Economics, Bad Law. Virginia Law Review. Vol. 60, nº 03. Mar., 1974

CALSAMIGLIA. Albert. Eficiencia y Derecho. Doxa, Cuadernos de Filosofia del Derecho, 1987. Vol. 4.

CNJ. Justiça em Números 2017 Ano-Base 2016. 2017. Available: <http://www.cnj.jus.br/files/conteudo/arquivo/2017/12/b60a659e5d5cb79337945c1dd137496c.pdf> Accessed on: 22.Feb.2019.

CNJ. Justiça em Números 2018 Ano-Base 2017. 2018. Available at: <http://www.cnj.jus.br/files/conteudo/arquivo/2018/08/44b7368ec6f888b383f6c3de40c32167.pdf> Accessed on 22.Feb.2019.

COSTA, Ana Carla Abrão; FRAGA NETO, Armínio; SUNDFELD, Carlos Ari. Hora de Reformar o RH do Estado. O Globo. Economia. 04.Nev.2018. Available at: <https://oglobo.globo.com/economia/hora-de-reformar-rh-do-estado-23209959> Accessed on 22.Feb.2019.

COUTINHO, Diogo R., Linking Promises to Policies: Law and Development in an Unequal Brazil. The Law & Development Review, vol. 3, No. 2. 2010. Available at: <http://ssrn.com/abstract=2145830> Accessed on: 22. Feb.2019.

DELFGAAUW, Josse; DUR, Robert. Incentives and Workers' Motivation in the Public Sector. Tinbergen Institute Discussion Paper No. 04-060/1. 2004. Available at: <https://ssrn.com/abstract=555062>. Accessed on 31.mar.2019.

DEWEY, John. The Public and its Problems. New York: Swallow Press, 1927.

DIMANT Eugen; SCHULTE, Torben. The Nature of Corruption: An Interdisciplinary Perspective. German Law Journal 01. 2016. Available at: <https://static1.squarespace.com/static/56330ad3e4b0733dcc0c8495/t/56b9128ab6aa60c971d60b31/1454969484150/PDF_Vol_17_No_01_05_Dimant%26Schulte_FINAL.pdf> Accessed on: 22.Feb.2019.

INEP. Metodologia Inédita do Inep Abre Debate Sobre Remuneração Média de Professor da Educação Básica. 2017. Available at: <http://portal.inep.gov.br/artigo/-/asset_publisher/B4AQV9zFY7Bv/content/metodologia-inedita-do-inep-abre-debate-sobre-remuneracao-media-de-professor-da-educacao-basica/21206> Accessed on 03.Mar.2019.

FAORO, Raymundo. Os Donos do Poder: Formação do Patronato Político Brasileiro. 5ª ed. São Paulo: Globo, 2012.

FARBER, Daniel A. e FRICKEY, Philip P. Law and public choice. A critical introduction. Chicago: University of Chicago Press, 1991

FONTAINHA, Fernando de Castro et. al. Processos seletivos para a contratação de servidores públicos. Brasil, o país dos concursos? Rio de Janeiro: FGV Direito Rio, 2014. Available at: <https://bibliotecadigital.fgv.br/dspace/bitstream/handle/10438/11929/Processos%20seletivos%20para%20a%20contrata%C3%A7%C3%A3o%20de%20servidores%20p%C3%BAblicos%20-%20Brasil%2C%20o%20pa%C3%ADs%20dos%20concursos.pdf> Accessed on 21.Sep.2019.

GINSBURG, Tom; HUQ, Aziz Z. How to Save a Constitutional Democracy. Chicago; London: The University of Chicago Press, 2018.

GOODIN, Robert E. (Ed.) The Theory of Institutional Design. Cambridge: Cambridge University Press, 1998.

JORDÃO, Eduardo. The Three Dimensions of Administrative Law. Belo Horizonte: Revista de Direito Administrativo e Constitucional, ano 19, nº 75, janeiro a março/2019. pp. 21-38. Available at: < https://www.researchgate.net/publication/333721974_The_Three_Dimensions_of_Administrative_Law> Accessed on 20.Sep.2019.

KLEIN, Fabio Alvim; MASCARENHAS, André Ofenheim. Motivação, satisfação profissional e evasão no serviço público: o caso da carreira de especialistas de políticas públicas e gestão governamental. Revista Brasileira de Administração Pública. Rio de Janeiro. Vol. 50. Jan/fev 2016. Pp. 17-39.

LAFFONT, Jean-Jacques; MARTIMORT, David. The Theory of Incentives: the principal-agent model. Princeton, NJ: Princeton University Press, 2001.

LOUNGHLIN, Martin. Foundations of Public Law. New York: The Oxford University Press. 2010.

MARINI, John. Unmasking the Administrative State. The crises of American politics in the twenty-first century. New York: Encounter Books, 2019.

MARKOVITS, Daniel. The Meritocracy Trap: how America’s foundational myth feeds inequality, dismantles the middle-class and devours the elite. New York: Penguin Press, 2019.

MASHAW, Jerry L. Creating the Administrative Constitution. The lost one hundred years of American Administrative Law. New Haven: Yale University Press, 2012.

MASHAW, Jerry L. Greed, Chaos and Governance. Using Public Choice to Improve Public Law. New Haven: Yale University Press, 1997.

MELO, Marcus André; PEREIRA, Carlos. Making Brazil Work. Checking the president in a multiparty system. New York: Palgrave Macmillan, 2013.

MENDONÇA, José Vicente Santos de. O Concurso Público e o Algoritmo Pouco Sofisticado do Direito Administrativo. 2019. Available at: <https://www.jota.info/opiniao-e-analise/artigos/o-concurso-publico-e-o-algoritmo-pouco-sofisticado-do-direito-administrativo-16022019> Accessed on: 17.Feb.2019.

MILLER, Gary. The Political Evolution of Principal-Agent Models. Annual Review of Political Science, v. 8, p.203-225, 2005.

MORAN, Michael; REIN, Martin; Goodin, Robert E. The Oxford Handbook of Public Policy. New York: Oxford University Press, 2016.

NICHOLSON-CROTTY, Sean; NICHOLSON-CROTTY, Jill; WEBECK, Sean. Are public managers more risk averse? Framing effects and status quo bias across the sectors. Journal of Behavioral Public Administration, Vol 2(1), pp. 1-14. 2019.

MOTA PRADO, Mariana; DA MATTA CHASIN, Ana Carolina. How Innovative Was the Poupatempo Experience in Brazil? Institutional Bypass as a New Form of Institutional Change. Brazilian Political Science Review, vol. 5, n. 1, 2011, pp. 11-34.

NOU, Jennifer. Civil Servant Disobedience. Chicago-Kent Law Review, Vol. 94, No. 2, 2019. Available at: https://ssrn.com/abstract=3356006. Accessed on: 30.Mar.2019.

NORTH, Douglass C. Institutions, Institutional Change and Economic Performance. Cambridge: Cambridge University Press, 1990.

NORTH, Douglass C. Economic Performance Through Time, 84 The American Economy Review. 359. 1994.

PRZEWORSKI, Adam. Sobre o desenho do Estado: uma perspectiva agente x principal. In: BRESSER-PEREIRA, Luiza Carlos (Org.). Reforma do Estado e administração pública gerencial. 5ª ed. Rio de Janeiro: FGV, 2003. P. 39-73.

O’DONNELL, Guillermo. Polyarchies and the (un)rule of law in Latin America. In: Méndez, Juan, O'Donnell, Guillermo e Pinheiro, Paulo Sérgio (orgs.). The rule of law and the unprivileged in Latin America. Notre Dame: University of Notre Dame Press, 1998.

OECD. Recommendation of the Council on Public Integrity. 2017. Available at: <http://www.oecd.org/gov/ethics/OECD-Recommendation-Public-Integrity.pdf> Accessed on 16.Feb.2019.

OECD. Avaliação da Gestão de Recursos Humanos no Governo. Brasil. 2010. Available at: <https://www.oecd-ilibrary.org/avaliacao-da-gestao-de-recursos-humanos-no-governo-relatorio-da-ocde-brasil_5kmhb2f4t546.pdf?itemId=%2Fcontent%2Fpublication%2F9789264086098-pt&mimeType=pdf> Accessed on 17.Feb.2019.

OHNESORGE, John. Administrative Law in East Asia: A Comparative-Historical Analysis. In: Comparative Administrative Law. ROSE-ACKERMAN, Susan; LINDSETH, Peter L. (org.) Northampton: Edward Elgar, 2010.

RIBEIRO, Leonardo Coelho. O direito administrativo como caixa de ferramentas e suas estratégias. RDA – revista de Direito Administrativo, Rio de Janeiro, v. 272, p. 209-249, maio/ago. 2016.

RIGOLIZZO, Michele; AMABILE, Teresa. Entrepreneurial Creativity: the role of learning processes and work environment supports. In: SHALLEY, Christina E.; HITT, Michael A.; ZHOU, Zing (Ed.). The Oxford Handbook of Creativity, Innovation and Entrepreneurship. New York: Oxford University Press, 2015.

ROSE-ACKERMAN, Susan; PALIFKA, Bonnie. Corruption and Government: Causes, Consequences and Reform. Second Edition. New York, NY: Cambridge University Press, 2016

ROSE-ACKERMAN, Susan; VALOSIN, Natalia e DESIERTO, Diane. Hyper-Presidentialism: Separation of Powers without Checks and Balances in Argentina and the Philippines. Berkeley Journal of International Law, v. 29, 2011, pp. 246-333.

SABEL, Charles; SIMON, William. Minimalism and Experimentalism in the Administrative State. Columbia Public Law Research Paper n. 10, p. 53-93. 2011.

SABEL, Charles; ZEITLIN, Jonathan. Experimentalist Governance. In: LEVI-FAUR, Davi. The Oxford Handbook of Governance. Oxford: Oxford University Press, 2012, p. 169-185.

SCHMIDT-ASSMANN, Eberhard. La Teoría General del Derecho Administrativo como Sistema.Trad. Mariano Bacigalupo et al. Madrid: Marcial Pons, 2003.

SHAPIRO, Mario G. Repensando a Relação entre Estado, Direito e Desenvolvimento: os Limites do Paradigma rule of law e a Relevância das Alternativas Institucionais. Rev. direito GV vol.6 no.1 São Paulo Jan./June 2010. Available at: <http://www.scielo.br/scielo.php?script=sci_arttext&pid=S1808-24322010000100011>. Accessed on: 22.Feb.2019.

SHAPIRO, Susan P. Agency Theory. Annual Review of Sociology. V. 31, 2005, p. 263-284.

SOREIDE, Tina; ROSE-ACKERMAN, Susan. Corruption in State Administration. In: ARLEN, Jennifer (ed). The Research Handbook on Corporate Crime and Financial Misdealing. Yale Law & Economics Research Paper No. 529. 2015. Available at: https://ssrn.com/abstract=2639141.

SORDI, Bernardo. Révolution, Rechtsstaat, and the Rule of Law: Historical Reflections on the Emergence of Administrative Law in Europe In: Comparative Administrative Law. ROSE-ACKERMAN, Susan; LINDSETH, Peter L. (org.) Northampton: Edward Elgar, 2010. p. 23-36.

SUNDFELD, Carlos Ari. Romper com o direito administrativo estável? Brasília: Jota, 2019. Available at: <https://www.jota.info/opiniao-e-analise/colunas/publicistas/romper-com-o-direito-administrativo-estavel-17092019> Accessed on: 20.Sep.2019.

SUNSTEIN, Cass. After the rights revolution. Cambridge: Harvard University Press, 1990.

SUNSTEIN, Cass. Deliberative Democracy in the Trenches. Daedalus. Journal of the American Academy of Arts & Sciences. Summer, 2017.

SUNSTEIN, Cass; VERMEULE, Adrian. Interpretations and Institutions. John M. Olin Program in Law and Economics. Working Paper n. 156, 2002.

STEARNS, Maxwell L. e ZYWICKI, Todd J. Public choice concepts and applications in law. St. Paul, Thompson Reuters, 2009.

STEPHENSON, Matthew. Corruption as a Self-Reinforcing Trap: Implications for Reform Strategies. October, 2018. Available at: <http://cienciassociales.edu.uy/departamentodeeconomia/wp-content/uploads/sites/2/2014/10/Self-Reinforcing-Corruption-October-2018.pdf> Accessed on: 22.Feb.2019.

STEPHENSON, Matthew. To Combat Corruption, Argentina Must Insist on Meritocratic Hiring in the Civil Service. 2019. Available at: <https://globalanticorruptionblog.com/author/mstephen404/> Accessed on: 22.Feb.2019.

STEPHENSON, Matthew. Information Acquisition and Institutional Design. Harvard Law Review, v. 124, p. 1642-ss. 2011.

TAYLOR, Matthew M. The Judiciary and Public Policy in Brazil. Revista de Ciências Sociais, v. 50, n. 2, pp. 229-257, 2007.

TRANSPARENCY INTERNATIONAL. 2018 Corruption Perception Index. 2019. Available at: <https://www.transparency.org/cpi2018?gclid=CjwKCAiAhp_jBRAxEiwAXbniXZ1KVnK3DbijDR09WBVWLqaq5wPkfkVvY_81jHkuNKg6Qi2YnSJjRoCuYIQAvD_BwE> Accessed on 16.Feb.2019.

TOSTA, André Ribeiro. Instituições e o Direito Público: empirismo, inovação e um roteiro de análise. Rio de Janeiro: Lumen Juris, 2019.

TRUBEK, David M. The Owl and the Pussycat: is there a future for “Law and Development”? Wisconsin International Law Journal, vol. 25, p. 235-242, 2007.

UNGER, Roberto Mangabeira. A constituição do experimentalismo democrático. Revista de Direito Administrativo, v. 257, p. 57-72, 2011.

VAUGHN, Robert. Whistleblower Protection and the Challenge to Public Employment Law. American University, WCL Research Paper No. 09-02; American University, WCL Research Paper No. 09-02. 2007. Available at: <https://ssrn.com/abstract=1346058> Accessed on 16.feb.2019.

VERMEULE, Adrian. Conventions of Agency Independence. Columbia Law Review. Vol. 113. No. 115. January 31, 2011. pp. 1163-1238.

VERMEULE, Adrian. Judging Under Uncertainty: an institutional theory of legal interpretation. Cambridge: Harvard Press, 2006.

VERMEULE, Adrian. Law’s Abnegation. Cambridge: Harvard Press, 2016.

WEBER, Max. Economia y Sociedad. México. Fondo de Cultura Econômica, 1964.

VERMEULE, Adrian. Law in Economy and Society. New York: Simon and Schuster, 1954.

WORLD BANK. A Fair Adjustment: Efficiency and Equity of Public Spending in Brazil. 2017. Available at: <http://documents.worldbank.org/curated/en/643471520429223428/Volume-1-Overview> Accessed on: 17.feb.2019.

ZETZSCHE, Dirk ANDREAS; Buckley, Ross P.; ARNER, Douglas W.; BARBERIS, Janos Nathan. Regulating a Revolution: From Regulatory Sandboxes to Smart Regulation. 23 Fordham Journal of Corporate and Financial Law, pp. 31-103, 2017. Available at: <https://ssrn.com/abstract=3018534> Accessed on 20.Sep.2019.

Downloads

Publicado

2021-12-28

Como Citar

MIGUEIS PEREIRA, Anna Carolina. Civil Servants: Tenure, Incentives and Democracy in the Administrative State in Brazil and Latin America. A&C - Revista de Direito Administrativo & Constitucional, Belo Horizonte, v. 21, n. 86, p. 25–57, 2021. DOI: 10.21056/aec.v21i83.1456. Disponível em: https://revistaaec.com/index.php/revistaaec/article/view/1456.. Acesso em: 26 nov. 2024.