THE STRUCTURE OF THE
BUREAUCRACY OF THE
BRAZILIAN STATE
AN ANALYSIS OF
PUBLIC EMPLOYMENT
BRAZILIAN STATE
THE STRUCTURE OF THE
BUREAUCRACY OF THE
BRAZILIAN STATE
AN ANALYSIS OF PUBLIC EMPLOYMENT
Rio de Janeiro, 2016
FGV/DAPP
Director
Marco Aurelio Ruediger
DAPP
+55 (21) 37994300 | www.dapp.fgv.br | [email protected]
TEAM
IMPLEMENTATION TEAM
Coordination
Marco Aurelio Ruediger
Researchers
Amaro Grassi
Miguel Orrillo
Rafael Martins de Souza
Graphic project
Rebeca Liberatori Braga
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 socioeconomic development of the country.
Head Office
Praia 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 President
Luiz Simões Lopes
President
Carlos Ivan Simonsen Leal
Vice-Presidents
Sergio Franklin Quintella, Francisco Oswaldo Neves Dornelles
e Marcos Cintra Cavalcante de Albuquerque
BRAZILIAN STATE
THE STRUCTURE OF THE
BUREAUCRACY OF THE
BRAZILIAN STATE
AN ANALYSIS OF PUBLIC EMPLOYMENT
OVERVIEW
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.
5|
DEPARTMENT OF PUBLIC POLICY ANALYSIS
EVOLUTION OF PUBLIC
EMPLOYMENT
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.
Number of employees
(1998-2014)
ServidoresPúblicos-Brasil
Public Employees – Brazil
9.5
9.0
8.5
8.0
milion
7.5
7.0
6.5
6.0
5.5
5.0
1998
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
NíveisdeAdministraçãoPública
Levels of Public Administration
Brasil
5.0
4.5
4.0
3.5
milion
3.0
2.5
2.0
1.5
1.0
0.5
1998
Federal
1999
State
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
Source: MTE/RAIS(1998-2014)
Municipal
Federal
Estadual
Municipal
Prepared by: FGV/DAPP
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 6
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)
ServidoresPúblicos-Brasil
Public Employees – Brazil
44
42
40
thousand
38
36
34
32
30
28
26
1999
2000
2001
2002
2003
2004
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2008
2009
2010
2011
2012
2013
2014
Levels of Public Administration
NíveisdeAdministraçãoPública
ServidoresPúblicos-Brasil
100
90
thousand
80
70
60
50
40
30
20
10
1999
Federal
2000
State
2001
2002
2003
2004
2005
2006
2007
Municipal
Federal
Estadual
Municipal
Source: MTE/ RAIS(1999-2014)
Prepared by: FGV/DAPP
7|
DEPARTMENT OF PUBLIC POLICY ANALYSIS
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)
ServidoresPúblicos-Brasil
Public Employees – Brazil
400
380
360
340
320
bilion
300
280
260
240
220
200
180
160
140
1999
2000
2001
2002
2003
2004
NíveisdeAdministraçãoPública
Levels of Public Administration
2005
2006
2007
2008
2009
2010
2011
2012
2013
2014
2008
2009
2010
2011
2012
2013
2014
ServidoresPúblicos-Brasil
170
160
150
140
130
120
bilion
110
100
90
80
70
60
50
40
30
1999
Federal
2000
State
2001
2002
2003
2004
2005
2006
2007
Municipal
Federal
Estadual
Municipal
Source: MTE/ RAIS(1999-2014)
Prepared by: FGV/DAPP
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 8
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)
ServidoresPúblicos-Brasil
Public Employees – Brazil
45
44
43
42
Employment positions
41
40
39
38
37
36
35
34
33
32
31
2000
2001
2002
2003
2004
2005
NíveisdeAdministraçãoPública
Levels of Public Administration
2006
2007
2008
2009
2010
2011
2012
2013
2014
2009
2010
2011
2012
2013
2014
ServidoresPúblicos-Brasil
26
24
22
20
Employment positions
18
16
14
12
10
8
6
4
2
2000
Federal
2001
State
2002
2003
2004
2005
2006
2007
2008
Municipal
Federal
Estadual
Municipal
Source: MTE/ RAIS(2000-2014) , IBGE
Prepared by: FGV/DAPP
9|
DEPARTMENT OF PUBLIC POLICY ANALYSIS
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)
ServidoresPúblicos-Brasil
Public Employees – Brazil
2,000
1,900
1,800
1,700
1,600
1,500
1,400
1,300
1,200
1,100
1,000
900
2000
2001
2002
2003
2004
2005
NíveisdeAdministraçãoPública
Levels of Public Administration
2006
2007
2008
2009
2010
2011
2012
2013
2014
2011
2012
2013
2014
ServidoresPúblicos-Brasil
850
800
750
700
650
600
550
500
450
400
350
300
250
200
2000
Federal
2001
State
2002
2003
2004
2005
2006
2007
2008
2009
2010
Municipal
Federal
Estadual
Municipal
Source: MTE/ RAIS(2000-2014), IBGE
Prepared by: FGV/DAPP
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 10
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)
ServidoresPúblicos
Public Employees
10.89%
13.78%
75.33%
Statutory
Non-Permanent
CLT
Municipal
Estatutário
Municipal
NãoEfetivo
CLT
18.48%
17.66%
63.86%
Statutory
Non-Permanent
CLT
Estatutário
11 |
NãoEfetivo
DEPARTMENT OF PUBLIC POLICY ANALYSIS
CLT
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
MUNICIPAL EMPLOYEE
PROFILE
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.
trativespheres
Outros0.99%
Others0.99%
Autarquias1.64%
Agencies1.64%
Legislativo2.07%
Legislature2.07%
Area
Administrativespheres
Executivo95.29%
Executive95.29%
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
Executivo
Executive
Legislativo
Legislature
Autarquias
Agencies
Outros
Others
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 12
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 employees
Positions per thousand inhabitants - 2014
PastGDP
Brazil
JoãoPessoa
38,88
Vitória
35,35
Palmas
32,68
PortoVelho
26,2
BoaVista
23,46
Goiânia
21,33
Cuiabá
21,26
SãoLuís
20,83
Macapá
18,98
Curitiba
18,45
Teresina
18,36
CampoGrande
17,49
Natal
16,83
Aracaju
16,52
Florianópolis
16,39
Maceió
15,48
Recife
15,25
RiodeJaneiro
14,33
BeloHorizonte
13,46
Belém
12,44
SãoPaulo
12,22
RioBranco
11,94
Manaus
11,41
PortoAlegre
11,2
Fortaleza
10,72
Salvador
7,47
Brasília 0
0
5
10
15
20
25
30
35
40
Positions
Norte
North
Palmas
PortoVelho
32,68
26,2
BoaVista
23,46
Macapá
18,98
Belém 12,44
RioBranco
11,94
Manaus
11,41
0
5
10
15
20
25
30
35
40
Positions
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
13 |
DEPARTMENT OF PUBLIC POLICY ANALYSIS
Distribuição de servidores municipais
Average earnings - 2014
Brasil
Brazil
PortoAlegre 5,97
Florianópolis
4,76
SãoPaulo
4,05
CampoGrande 4,04
BeloHorizonte 3,95
Salvador 3,91
Curitiba
3,82
Fortaleza
3,72
Manaus
3,62
RiodeJaneiro
3,45
Aracaju
3,17
Vitória
3,14
Teresina
3,14
Recife
3,04
RioBranco
2,86
Maceió
2,85
Goiânia
2,84
Natal
2,83
Palmas
2,80
Belém
2,76
Macapá
2,66
PortoVelho
2,62
Cuiabá
2,38
SãoLuís
2,35
BoaVista
2,03
JoãoPessoa
1,61
Brasília 0
0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
4.5
5.0
5.5
4.0
4.5
5.0
5.5
Norte
North
Manaus
3,62
RioBranco
2,86
Palmas
2,8
Belém 2,76
Macapá
2,66
PortoVelho
2,62
BoaVista
2,03
0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
Source: MTE/ RAIS(2014)
EPrepared by: FGV/DAPP
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 14
Nordeste
Northeast
JoãoPessoa
38,88
SãoLuís
20,83
Teresina
18,36
Natal 16,83
Aracaju
16,52
Maceió
15,48
Recife
15,25
Fortaleza
10,72
Salvador
7,47
0
5
10
15
20
25
30
35
40
Positions
CentroOeste
Center-west
Goiânia
21,33
Cuiabá
21,26
CampoGrande
17,49
0
5
10
15
20
25
30
35
40
25
30
35
40
25
30
35
Positions
Sudeste
Southeast
Vitória
35,35
RiodeJaneiro
14,33
BeloHorizonte 13,46
SãoPaulo
12,22
0
5
10
15
20
Positions
Sul
South
Curitiba
18,45
Florianópolis
16,39
PortoAlegre 11,2
0
5
10
15
20
40
Positions
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
15 |
DEPARTMENT OF PUBLIC POLICY ANALYSIS
Nordeste
Northeast
Salvador
3,91
Fortaleza
3,72
Aracaju
3,17
Teresina
3,14
Recife
3,04
Maceió
2,85
Natal
2,83
SãoLuís
2,35
JoãoPessoa
1,61
0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
4.5
5.0
5.5
CentroOeste
Center-west
CampoGrande 4,04
Goiânia
2,84
Cuiabá
2,38
0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
4.5
5.0
5.5
1.5
2.0
2.5
3.0
3.5
4.0
4.5
5.0
5.5
4.5
5.0
5.5
Sudeste
Southeast
4,05
SãoPaulo
BeloHorizonte 3,95
RiodeJaneiro
3,45
Vitória
3,14
0
0.5
1.0
Sul
South
PortoAlegre 5,97
Florianópolis
4,76
Curitiba
3,82
0
0.5
1.0
1.5
2.0
2.5
3.0
3.5
4.0
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 16
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 Janeiro
2014
Gender
23.15%
76.85%
Female
Male
laridade
Feminino
Masculino
Education
0.34%
1.40%
5.03%
5.59%
5.68%
81.97%
Incomplete Second Level
Up to 5th Grade Incomplete Fundamental Education
6 – 9 Grade Incomplete Fundamental Education
EnsinoMédioIncompleto
Incomplete Third Level
Complete Fundamental Education
Complete Third Level
Atéo5ªanoIncompletodoEnsinoFundamental
EnsinoFundamentalCompleto
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
Do6ªao9ªanoIncompletodoEnsinoFundamental
17 |
EducaçãoSuperiorIncompleta
DEPARTMENT OF PUBLIC POLICY ANALYSIS
EducaçãoSuperiorCompleta
Age
0.94%
16.28%
22.68%
26.30%
33.80%
18|--25
25|--35
35|--45
18|--25
Type of contract
45|--55
25|--35
55 or +
35|--45
45|--55
55ou+
1.68%
98.32%
Statutory
Non-Permanent
Estatutário
Nãoefetivo
Source: MTE/ RAIS(2014)
Prepared by: FGV/DAPP
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 18
xarenda
Average income band (Minimum Wages)
1.49%
10.56%
3.48%
39.60%
44.87%
0|--2
poemprego
2|--4
4|--10
10|--20
0|--2
Time in employment (years)
20 or +
2|--4
4|--10
10|--20
20ou+
7.91%
10.90%
28.16%
6.74%
7.70%
11.83%
16.04%
10.72%
0|--4
0|--4
19 |
4|--8
8|--12
4|--8
12|--16
8|--12
16|--20
20|--24
12|--16
24|--28
28 or +
16|--20
DEPARTMENT OF PUBLIC POLICY ANALYSIS
20|--24
24|--28
Source: MTE/ RAIS(2014)
28ou+
Prepared by: FGV/DAPP
METHODOLOGICAL
NOTES
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.
SOURCES
MTE/RAIS
Years: 1998 - 2014
http://www.rais.gov.br/
IBGE
Instituto Brasileiro de Geografia e Estatística
http://www.ibge.gov.br/home/
http://www.ibge.gov.br/apps/populacao/projecao/
Central Bank of Brazil
https://www3.bcb.gov.br/sgspub/localizarseries/localizarSeries.
do?method=prepararTelaLocalizarSeries
THE STRUCTURE OF THE BUREAUCRACY OF THE BRAZILIAN STATE: AN ANALYSIS OF PUBLIC EMPLOYMENT | 20
TEAM
FGV/DAPP
Department of Public Policy Analysis | Getulio Vargas Foundation
DIRECTOR
Marco Aurelio Ruediger
Researchers
Amaro Grassi
Miguel Orrillo
Rafael Martins de Souza
INNOVATION FOR PUBLIC POLICIES
dapp.fgv.br
[email protected]
+55 (21) 3799.4300