Na epidemia, governo ignora sistema de assistência social que protege mais pobres

O Suas abrange os dois programas de transferência de renda do governo federal: Bolsa Família e BPC

Presente em 99% dos municípios, o Suas foi deixado de lado na resposta do governo à covid-19. Para especialistas, ação dificulta apoio à população vulnerável durante a crise, incluindo o repasse do auxílio emergencial.

As iniciativas do governo Jair Bolsonaro para reduzir o impacto da epidemia de covid-19 sobre a vida dos mais pobres deixaram de lado um sistema de assistência social presente em 99% dos municípios brasileiros. Como resultado, muitas famílias que teriam direito ao auxílio emergencial enfrentam atrasos e dificuldades para receber o benefício, e uma infraestrutura instalada para apoiar os vulneráveis ainda não tem papel definido em meio a uma das piores crises da história do país.

O Sistema Único de Assistência Social (Suas) foi criado em 2005 e funciona de forma parecida ao Sistema Único de Saúde (SUS), com gestão e financiamento compartilhados entre governos federal, estaduais e municipais, além de parcerias com organizações privadas.

O sistema oferece uma série de serviços de apoio à população vulnerável, como orientação e proteção familiar, prevenção de situações de risco, regularização de documentos e registro das famílias no Cadastro Único, que reúne dados sobre as pessoas pobres e orienta as políticas públicas do governo para essa faixa da população.

Os atendimentos são realizados nos Centros de Referência de Assistência Social (Cras), instalados em 5.522 dos 5.570 municípios do país. Há ainda cerca de mais 3 mil centros especializados no atendimento de pessoas em situação de violência ou em situação de rua.

O auxílio emergencial, política mais importante do governo para apoiar a população pobre e trabalhadores informais, foi estruturado e viabilizado por meio de um aplicativo de celular da Caixa, e ignorou essa estrutura de atendimento do Suas. Milhares de famílias com direito à bolsa temporária de R$ 600 mensais tiveram seus cadastros rejeitados e, em meio à epidemia, foram obrigadas a se aglomerar em agências do banco público em busca de uma solução para o problema.

À DW Brasil, o cientista político Sérgio Simoni, professor da Universidade Federal do Rio Grande do Sul, enumera três hipóteses para o governo ter usado esse desenho para o auxílio emergencial: garantir o controle sobre o processo de concessão dos benefícios, reduzir eventuais problemas de coordenação com estados e municípios e evitar dividir os benefícios políticos do auxílio com outros atores, já que a gestão do Suas é compartilhada com governadores e prefeitos.

“Ao concentrar somente na Caixa e no aplicativo, e não usar o Suas, o governo dificultou muito o procedimento para as pessoas mais vulneráveis, que não têm acesso à internet ou não têm familiaridade com aplicativos ou transações financeiras”, afirma Simoni.

O desdém da gestão Bolsonaro pelo Suas durante a epidemia é agravado pela redução do orçamento federal para atendimentos realizados pelo sistema, após a crise econômica de 2015.

No ano passado, essa rubrica (“outras ações” no gráfico abaixo) recebeu 0,07% do PIB, contra 0,1% em 2014. Em valores corrigidos pelo IPCA até abril deste ano, os serviços prestados pelo Suas receberam R$ 4,9 bilhões em 2019, cerca de um terço a menos do que os R$ 7,6 bilhões de 2014. A redução de verbas prejudica o alcance e a qualidade do atendimento aos mais vulneráveis.

O Suas também abrange os dois programas de transferência de renda do governo federal: o Bolsa Família, que paga em média R$ 189 mensais a famílias em pobreza ou extrema pobreza, e o Benefício de Prestação Continuada (BPC), que paga um salário mínimo a pessoas com deficiência ou maiores de 65 anos que têm renda familiar inferior a um quarto do salário mínimo.

Após a crise de 2015, o montante de recursos destinados ao BPC, que é vinculado ao salário mínimo, continuou subindo e se estabilizou em torno de 0,8% do PIB. Já o peso do Bolsa Família no Orçamento, cujos valores não são vinculados, se manteve relativamente estável, em 0,45% do PIB, apesar de o número de pobres ter aumentado no período.

Infográfico mostra os gastos da União em assistência social ao longo dos anos

Além da crise econômica de 2015, um dos motivos para a queda do orçamento federal para os serviços de assistência social é o teto de gastos do governo federal, aprovado em 2016, que congelou em termos reais o volume de despesas do governo por vinte anos, afirma Ursula Peres, professora da USP e pesquisadora do Centro de Estudos da Metrópole.

“O BPC [por ser um direito estabelecido na Constituição e vinculado ao salário mínimo] cresce independente de decisão política. Já os programas que dependem de decisão política ficam espremidos”, diz Peres. De 2017 para 2018, no segundo ano da vigência do teto de gastos, houve queda de 35% dos serviços oferecidos pelo Suas.

Deficiências no cadastro das famílias pobres

O corte dos recursos para os serviços oferecidos pelo Suas não explica todas as dificuldades encontradas pelo sistema atualmente, afirma a cientista política Renata Bichir, professora da USP e diretora científica do Centro de Estudos da Metrópole. A outra variável é como o presidente orienta politicamente os programas do governo.

Ela afirma que, a partir da gestão de Michel Temer, houve uma redução da busca ativa para encontrar brasileiros pobres e registrá-los no Cadastro Único. Essa iniciativa usava equipes volantes e propagandas para ir atrás de pessoas que não se deslocavam por contra própria aos Cras, por desconhecerem seus direitos ou morarem em regiões isoladas.

De 2015 a 2020, apesar de o percentual da população pobre, que vive com menos de um quarto do salário mínimo per capita, ter subido de 10,3% para 12,4%, o número de pessoas registradas no Cadastro Único caiu de 82 milhões para 75 milhões.

Isso significa que o Estado brasileiro tem hoje informações menos precisas sobre quem são e onde estão os pobres. Um boletim elaborado pela Rede de Pesquisa Solidária, que reúne pesquisadores de diversos centros de pesquisa brasileiros, estima haver 20 milhões de pessoas fora do Cadastro Único que deveriam estar dentro desse radar do governo.

Bichir explica que o Suas pode cometer dois erros ao definir seu público-alvo: o “erro de inclusão”, que ocorre, por exemplo, quando alguém que não teria direito ao Bolsa Família recebe o benefício, e o “erro de exclusão”, quando alguém que tem direito à transferência de renda não a recebe. “Após 2016, voltamos para um discurso antigo, que só foca no erro de inclusão, falando em fraudes, e paramos de fazer a busca ativa”, diz.

A reação do governo à pandemia

Bichir afirma que a decisão do governo federal de estruturar o auxílio emergencial por fora do Suas e não usar a sua posição para coordenar estados e municípios e mobilizar o sistema para prover assistência à população vulnerável terá um custo social “imenso”.

“A política de assistência social deveria estar agora na linha de frente, temos estrutura, capilaridade e funcionários, mas que não estão atuando. O mais perverso é que essas estruturas deveriam ser ativadas em situações de crise, mas hoje temos uma ausência de coordenação”, afirma.

Implementar o auxílio emergencial exclusivamente pela Caixa também trará uma dificuldade adicional ao governo no curto prazo: harmonizar o Cadastro Único com o novo cadastro feito pelo aplicativo da Caixa. Os dois bancos de dados registram informações diversas e com graus variados de detalhamento.

O Congresso discute atualmente projetos para prorrogar o auxílio emergencial, e o governo analisa internamente estender o benefício por mais alguns meses ou criar um novo programa de transferência de renda que tenha um valor menor e seja mais focalizado e personalizado para as necessidades de cada família. Para isso, o resultado da política pública depende da qualidade dos dados disponíveis.

“O governo terá que lidar com esses dois cadastros, e se fizer isso desde já o problema será minimizado no futuro. O Suas não participou da renda básica emergencial, mas terá um papel essencial, na saída da crise, em como lidar com o contingente de vulneráveis que teremos”, afirma Simoni.

____________

A Deutsche Welle é a emissora internacional da Alemanha e produz jornalismo independente em 30 idiomas. 

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