regulatory governance and institutions: the brazilian ministério público
TRANSCRIPT
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Regulatory Governance and Institutions: the Brazilian Ministério PúblicoDaniel Lima Ribeiro
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BrazilDemocracy 26 states and Capital Separation of Powers 30 branches of MP 13508 members
State of Rio de Janeiropopulation 16M 903 members MP
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Redemocratization begins
1979 1981National Environmental Policy Act
1985Public Civil Action Act
1988Constitution
constitutional transformation: rights and principles revolutions
transformation of the MP
prosecutorsEurope 14th century
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The 80s’ transformations:
institutionalMP becomes independent from the Executive and can file civil lawsuits to protect constitutional “rights" (even against the Executive)
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The 80s’ transformations (cont’d):
legal / constitutionalsocial and collective rights in the Constitution (welfare, health, safety, environment, etc…): if it is not a right, it is a principle (ex.: “free enterprise”).
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# of words in the Constitution
81,000
4,543
US Constitution Brazilian Constitution
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The 80s’ transformations (cont’d):
political“If it’s in the constitution, it is an enforceable norm”: rise of judicial activism (“neo-constitutionalism”)
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Constitutional position of Latin American MPs
Executive
Judicial
Autonomous
0 3 6 9 12
Latin American MPs with powers to file civil suit
40%
60%
Only criminal Also civil
MP in other Latin American countries:
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0
200
400
600
800
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
# Google hits: ”New Constitutionalism" in Spanish
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Brazil in the Ranking of Corruption Perception Index
0
20
40
60
80
1996 1997 1998 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013
source: Transparency International
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but… how to enforce a constitutional "right" or a "principle"?
what exactly is a right "to a clean environment", "to safety”?
solution (?): principles (proportionality, polluter-pays, precautionary)
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The proportionality principle:
step #1 minimum rationality
step #2 cost-effectiveness (LRM)
step #3 tradeoff analysis
based on… judicial intuition!
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Without a rulemaking record or legislative history?No APA neither RIA equivalent in Brazil
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# of hits “proportionality principle” on Google Brazil
0
2750
5500
8250
11000
2003 2004 2005 2006 2007 2008 2009 2010 2011 2012 2013 2014
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Number of opinions by the Brazilian Supreme Court applying the proportionality principle
0
22.5
45
67.5
90
country prop_tot_90 92 94 96 98 2000 2002 2004 2006 2008 2010 2012
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Examples: 1. the new Forest Code 2. Burning waste from sugar cane plantations
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Regulatory Systems: Comparing the US and Brazil
US Brazil
legal procedure / analytics APA + RIA "Principles"
Rulemaking power
agencies and independent agencies
President, agencies (and commissions)
Regulatory oversight
courts (APA), Executive (OIRA/RIA) courts
Actors stakeholders with standing + automatic (rules triggering RIA)
stakeholders with standing + MP
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regulations judicial reviewimpact assessment?
could RIA fill the gap? MP
instead of "principles"
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Regulatory Systems: Comparing the US and Brazil
US Brazil
legal procedure / analytics APA + RIA RIA
Rulemaking power
agencies and independent agencies
President, agencies (and commissions)
Regulatory oversight
courts (APA), Executive (OIRA/RIA) courts + Executive (RIA)
Actors stakeholders with standing + automatic (rules triggering RIA)
stakeholders with standing + MP
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Average rules/year in Brazil
0
100
200
300
400
President Congress Agencies (11) Environment
Source: estimated average based on the list of rules for 2012 and 2013 — websites of Congress, ANATEL, AVISA, ANTT, ANEEL, and CONAMA
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Signs of change:
OECD and RIAInfluenced by OECD, Brazil is taking initial steps to implement a pilot RIA program (… not applicable to Presidential decrees)
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Improving Latin American regulatory governance:
“Neo-constitutionalism”, rights- and principle-based approaches are not conducive to good governance, neither to good quality regulation.
Evidence-based policy making and regulatory impact assessment could provide the missing structure to proportionality and other standards of regulatory oversight.
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Improving Latin American regulatory governance (cont’d):
New institutional designs required when the President has significant regulatory powers (e.g., MP?)