Untitled - Agrosecurity

Empresa Brasileira de Pesquisa Agropecuária
Embrapa Estudos e Capacitação
Ministério da Agricultura, Pecuária e Abastecimento
Universidade Estadual de Campinas
Instituto de Economia
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Antônio Márcio Buainain
Eliseu Alves
José Maria da Silveira
Zander Navarro
Editores Técnicos
Embrapa
Brasília, DF
2014
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1
estrutura de propriedade e as relações sociais vigentes – a estrutura agrária – como o principal obstáculo ao processo
de modernização da agricultura. Uma ampla reforma agrária, redistribuindo as terras dos grandes latifúndios entre os
minifundistas e agricultores sem terra, romperia com o gargalo da rigidez da oferta de alimentos e matérias-primas de
origem agropecuária. Além disso, ao incorporar ao mercado milhões de famílias até então marginalizadas, a Reforma
Agrária dinamizaria a vida econômica rural, ampliaria o mercado doméstico para a indústria nacional e criaria as
pré-condições para a superação do modelo de crescimento excludente. De outro lado, outra corrente advogava que
o problema central residia no atraso tecnológico da agricultura, decorrente de variáveis de mercado – estreiteza do
governamental – e não da estrutura de propriedade fundiária. A recomendação política derivada deste diagnóstico
era a de promover a modernização da base técnica da agricultura, a integração agro-industrial e a modernização
dos canais de comercialização.” (BUAINAIN, 1999, p. 88). Ver Gonçalves (1997) e Leite (1998), para uma revisão
detalhada deste debate e das suas implicações políticas e para a política agrícola.
2
Em relação ao aumento da produção e produtividade, Kageyama (1990) refere ao esforço requerido como
fatores e na organização produtiva que não eram consistentes com a sinalização dos mercados agrícolas.
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3
Embora a montagem do SNPA nunca tenha se completado, e sua marginalização tenha antecedido à sua
desmontagem, a concepção do Sistema de Planejamento e o esforço institucional dedicado à sua montagem são
elementos marcantes do padrão de intervenção planejada dos anos 1970 e início dos 1980.
4
Os três outros são: os estabelecimentos de menor porte que se modernizaram e estão, em sua maioria, integrados
às cadeias dinâmicas do agronegócio, em vários setores: leite, grãos, tabaco, frutas, suínos e aves e café; as
indústrias de insumos, máquinas e equipamentos, juntamente com a indústria de processamento; e, por último, o
cada vez mais abrangente setor de serviços de apoio para a agropecuária, que inclui assistência técnica, serviços
5
O Banco do Brasil era (e continua sendo, agora ao lado do BNDES) o banco de fomento da agricultura, da mesma
maneira que o BNDES sempre foi o banco de fomento da indústria. O BB operava a chamada Conta Movimento,
que representava um cheque em branco do Tesouro para cobrir as operações de crédito rural realizadas pelo
banco. Na prática, a Conta Movimento dava ao BB – ou melhor, a cada gerente das agências do BB – poder de
emissão de moeda, que só foi suprimido em 1985, com a extinção da Conta Movimento.
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6
Ver Carneiro (2002) e Carneiro e Buainain (1989) para uma análise da política econômica nos anos 1980, e
Rezende (2003) e Buainain e Souza (2011) para uma análise das relações entre a evolução da política agrícola e
econômica neste período.
7
Os preços de alimentos cuja oferta precisava ser estimulada passaram a ser sistematicamente congelados e
administrados; a PGPM passou a ser mais instrumento de controle de preços do que de garantia de preço e
renda para o produtor; o crédito, até então abundante e barato, na expressão que se popularizou nos artigos
muitas exportações voltaram a ser contingenciadas; o governo deixou de garantir o preço mínimo e as perdas de
produção por motivos climáticos.
8
Boa parte dessas medidas não exigem investimentos relevantes, mas apenas capacidade de gestão e organização.
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Figura 1. Principais marcos institucionais do sistema de crédito agrícola no Brasil.
Fonte: Almeida e Zylbersztajn (2008).
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9
GASQUES, J. G.; CONCEIÇAO, J. C. Financiamento da agricultura. Brasilia, DF: IPEA, 1998. Não publicado.
10
Deve-se destacar que, além de eventos climáticos e conjunturas adversas de mercado, parte da inadimplência
renegociada naquele período foi provocada pelas inconsistências e rupturas das políticas econômicas e
agricultores evidencia a incapacidade do governo para implementar suas próprias políticas, mesmo quando
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11
A evolução da subvenção foi errática, embora ascendente. O PSR começou a funcionar em 2005, com subvenção
de apenas R$ 2,3 milhões; em 2006, foram R$ 31 milhões; em 2007, R$ 60,9 milhões; e, em 2009, alcançou
R$ 259 milhões. Caiu dois anos sucessivos e, em 2012, subiu para R$ 318,2 milhões, atingindo, em 2013,
R$ 557,8 milhões.
12
introduzidos. Também se procurou introduzir o princípio da responsabilidade compartida entre os participantes, a
que comprovarem bom desempenho nas safras anteriores. Foram introduzidas novas diferenciações nos prêmios
ao zoneamento agrícola, que desde então vem se aperfeiçoando, e hoje é uma das ferramentas mais importantes
da política agrícola brasileira.
13
(CDCA).
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14
Segundo dados da Agrosecurity, na safra 2010/2011, enquanto as taxas de juros controladas eram contratadas ao
valor nominal de 6,75% a.a., as taxas livres praticadas no mercado nas operações de crédito agrícola comercial
privado variaram, em geral, entre 12% e 20% a.a.
15
Além disso, é um instrumento importante para os grandes produtores, já que o volume de crédito é limitado por
CPF, e não por unidade de área.
16
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Tabela 1. Principais instrumentos da política agrícola brasileira, segundo o Plano Safra do Ministério do
Desenvolvimento Agrário (MDA) e Plano Agrícola e Pecuário (PAP) do Mapa, 2013 e 2014.
Instrumento
Descrição
Plano Safra da Agricultura Política de crédito para custeio e investimento oferecido
Familiar: Pronaf e outras pelo MDA
ações
Plano Safra da Pesca
e Aquicultura: Pronaf e
outras ações
Valor
(R$ bilhões)
39,00
Estímulo à cadeia produtiva da pesca e aquicultura a partir do MPA
4,10
Plano Agrícola e Pecuário Apoio ao produtor rural a partir da oferta de crédito pelo
Mapa
136,00
Custeio e
comercialização
Crédito para custeio e comercialização da produção agrícola
97,60
Investimentos
Crédito para investimentos na produção agrícola
38,40
Programa ABC
Estímulo à redução da emissão de gases de efeito estufa
4,55
Moderagro
Modernização da agricultura e conservação dos recursos
naturais
0,55
Moderinfra
Incentivo à irrigação e à armazenagem
0,55
Prodecoop
Desenvolvimento cooperativo para agregação de valor
0,35
Procap-Agro
Capitalização de cooperativas agropecuárias
3,24
PCA
Programa de construção e ampliação de armazéns
3,50
Inovagro
Incentivos à inovação tecnológica na agropecuária
1,00
Prorenova
Renovação e expansão de canaviais
4,00
Apoio ao Médio
Produtor: Pronamp
Programa Nacional de Apoio ao Médio Produtor
Programa de
Subvenção ao Prêmio
do Seguro Rural
Oferta ao produtor rural de possibilidade de proteger-se
das perdas decorrentes de eventos climáticos adversos
Programa de
Garantia da Atividade
Agropecuária(1)
0,70
0,30
pelo produtor e indenização dos recursos próprios aplicados em função de perdas de receitas por eventos climáticos
adversos ou pragas e doenças sem método de combate
Total
(1)
13,2
181,3
O Proagro não tem seus dados divulgados no PAP ou Plano Safra, mas conforme auditoria do TCU, divulgada em março de 2014, o
número de operações enquadradas no Proagro atingiu, em 2012, o volume de mais de 504 mil operações, num valor coberto superior
sistemáticos anuais, numa média de 342 milhões entre as safras de 2004/2005 e 2011/2012 (837,6 milhões na safra 2004/2005; 597,6
milhões na safra 2005/2006; e a 793,2 milhões na safra 2011/2012 e R$ 1,08 bilhão para a safra 2012/2013). Vale ainda ressaltar que
essa situação já ocorreu no passado, conforme o relatório do Instituto de Pesquisa Econômica e Aplicada (Ipea) intitulado Análise do
Seguro Agrícola do Brasil no período 2006–2011. O Proagro sofreu com descontinuidades, falta de fundos de cobertura aos grandes
vezes passando de 3, em 18 dos 27 anos decorridos de 1974 a 2005.
Fonte: Brasil (2014a, 2014b, 2014c).
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17
Não há informações precisas sobre esse ponto, mas praticamente todas as análises da evolução do PSR indicam
Deve-se destacar que as resseguradoras assumem em média 90% do risco, e que a restrição de resseguro se
transfere para a oferta de seguro.
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18
Pode-se argumentar que o mesmo ocorreu com a política econômica do País.
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Figura 1. Crédito rural: evolução dos recursos a valores constantes, em bilhões de reais.
Nota: elaboração própria, a partir de dados do Anuário Estatístico de Crédito Rural do Banco Central.
3QYRHSVYVEPRS&VEWMPHSWÍGYPS 4EVXI
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Figura 2.
valor, de 2000 a 2012.
Nota: elaboração própria, a partir de dados do Anuário Estatístico de Crédito Rural do Banco Central.
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Figura 3.
tério de número de contratos e valor contratado, em 2012.
-
Nota: elaboração própria, a partir de dados do Anuário Estatístico de Crédito Rural do Banco Central.
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Figura 4. Crédito rural: aplicação dos recursos para investimento rural – R$ mil.
(1)
2013/14: programado.
Nota: elaboração própria, a partir de dados do Mapa/SPA-Secretaria de Política Agrícola e Departamento de Economia Agrícola do
Ministério da Agricultura, Pecuária e Abastecimento (Deagri).
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1
Programa Agricultura de Baixo Carbono, para produtores que possuam práticas de baixa emissão de gases de
efeito estufa no processo de produção.
2
O Programa de Sustentação do Investimento, para aquisição de Bens de Capital (PSI-BK) é uma linha de crédito
carência de 3 a 24 meses, prazo de pagamento de até 120 meses e juros de 3,0% a 3,5% ao ano.
3
Segundo dados da Anfavea, a venda de tratores passou de 53,3 mil no ano de 2011 para 66,1 mil unidades em
2013. Já a venda de colheitadeiras passou de 5,3 mil unidades em 2011 para 7,5 mil unidades em 2013.
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4
5
Banco Central do Brasil (2014).
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TSMWEWIQTVIWEWRÇSGSRWIKYIQI\IGYXEVSWTVSHYXSVIWTEVEVIGIFIVEWHÑZMHEWI
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Tabela 2.
Grupo
Crédito agrícola
comercial privado
Agentes participantes
Moeda de
pagamento
Crédito bancário
Bancos comerciais
R$
Cooperativas de crédito
Cooperativas de crédito
R$
Compra de insumos com
pagamento a prazo safra
Fornecedores e distribuidores
(revendas e cooperativas
agropecuárias)
R$ ou US$
Venda antecipada da
produção
Tradings, agroindústrias e
exportadores
R$ ou US$
Operação de troca (Barter)
Fornecedores e distribuidores
(revendas e cooperativas
agropecuárias) + tradings,
agroindústrias e exportadores
Grão
Fonte: Silva (2012).
Figura 5.
safra 2009/2010.
Fonte: Silva (2012).
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XSVIWWÇSGEVEGXIVM^EHSWTSVQ×HYPSWEKVSTIGYÅVMSWQIRSVIWI\MWXIQEMSVHITIRHÎRGME
TVSHYXSVIWWÇSQEMSVIWLÅQEMSVHITIRHÎRGMEHIVIGYVWSWTVMZEHSWSVMYRHSWHIXVEHMRKW
3QYRHSVYVEPRS&VEWMPHSWÍGYPS 4EVXI
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EPXSKVEYHIHMJIVIRGMEËÇSHSWTVSHYXSWSKVEYHIGSRGIWWÇSHIGVÍHMXSESWTVSHYXSVIWÍ
QÍHMS
Figura 6.
regiões Sul e Centro-Oeste.
Fonte: Silva (2012).
IHMJYWÇSHSGVÍHMXSVYVEP
HYXSVIWEMRHETSWWYIQTSYGSSYRIRLYQEGIWWSESGVÍHMXSVYVEPRS4EÑW7IKYRHSHEHSW
6
O grau de concessão de crédito das empresas de defensivos, fertilizantes e sementes é analisado aqui em função
dos dados referentes às vendas a prazo safra (aquisição do insumo pelo produtor com pagamento após o período
de colheita da safra) e operações de troca (aquisição do insumo pelo produtor com a contrapartida da entrega do
produto a uma trading após a colheita).
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VIWTIGXMZEQIRXIHIQMPLÙIWIQMPLÙIW4SVXERXSEWWYQMRHSzMVVIEPMWXMGEQIRXIz
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FVEWMPIMVELÅYQMRXIVIWWIGVIWGIRXIHSWFERGSWTVMZEHSWIQEYQIRXEVETEVXMGMTEËÇSHI
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VIHY^EXE\EHIEHIWÇSESWIKYVSVYVEPUYIÍYQQMXMKEHSVJYRHEQIRXEPHIVMWGSTEVESW
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---UYII\MKIQHSWFERGSWQIPLSVEWREUYEPMHEHIHSWEXMZSWTEVETVIZIRMVGVMWIWKPSFEMWI
7
Essa hipótese não é realista, visto que é muito comum que o mesmo estabelecimento agropecuário realize mais
de um contrato de crédito no mesmo ano agrícola. Porém, dado que o Banco Central não discrimina o número
de produtores contratantes dos créditos e sim o número de contratos total, a opção encontrada foi utilizar essa
políticas públicas e avaliar seus impactos e resultados.
8
Segundo dados do Banco Central, a implantação no Brasil da nova estrutura de capital de Basileia III iniciou em
1º de outubro de 2013 e segue o cronograma internacional acordado até a conclusão do processo, em 1º de
janeiro de 2022. Disponível em: <http://www.bcb.gov.br/pt-br/paginas/banco-central-implanta-recomendacoes-debasileia-iii-1-3-2013.aspx>.
3QYRHSVYVEPRS&VEWMPHSWÍGYPS 4EVXI
Tabela 3.
no Brasil.
Item
Hectare (milhão)
Participação (%)
Área total (A + B)
69,2
100,0
A – Área de lavouras temporárias
63,0
91,1
6,2
8,9
27,2
39,4
42,0
60,6
B – Área de lavouras perenes
Fonte: elaboração própria baseada em dados do IBGE (2006) e Banco Central do Brasil (2012).
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9
importantes; atualmente, existem 28 câmaras setoriais no agronegócio.
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3WTVSFPIQEWHIMRJVEIWXVYXYVEGSQSPSKÑWXMGEHIXVERWTSVXIIGETEGMHEHIHIEVQE
^IREKIQTVIGMWEQWIVIRJVIRXEHSWZMWXSUYIEJIXEQHIJSVQEMRHMVIXESWJSVRIGIHSVIW
XSVREQWIQEMSVIWTEVEXSHEEGEHIMEIWTIGMEPQIRXITEVEEUYIPEWZSPXEHEWTEVEEI\TSV
XEËÇS GSQS SW KVÇSW EPKSHÇS EËÞGEV I GEVRIW % I\XIRWÇS VYVEP I E EWWMWXÎRGME XÍGRMGE
TVSHYXSVIW
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TVSHYËÇSHS4EÑWSIJIMXSQYPXMTPMGEHSVHIGSVVIRXIHSWTVSFPIQEWIRJVIRXEHSWREEKVMGYPXYVE
WIIWTEPLETIPSWHIQEMWWIXSVIWHEIGSRSQMEEJIXERHSSFIQIWXEVHEWSGMIHEHI:EVMEËÙIW
REVIRHEMQTPMGEQIQEPXIVEËÙIWRSRÑZIPHIIQTVIKSIREEVVIGEHEËÇSHIMQTSWXSWQYRM
GMTEMWIWXEHYEMWIJIHIVEMW6IHYËÙIWREWZIRHEWHSGSQÍVGMSRETVIWXEËÇSHIWIVZMËSWRSW
MRZIWXMQIRXSWIQGSRWXVYËÇSGMZMPIREMRHÞWXVMEHIQÅUYMREWIIUYMTEQIRXSWIRXVISYXVSW
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STVSHYXSVVYVEPEYQGMGPSZMGMSWSUYIGSQIËEGSQSIRHMZMHEQIRXSEWWYQMHSERXIWHS
TPERXMSHEWEJVETIVHMHEIEXMRKIEWEJVEWIKYMRXIGSQEMRGETEGMHEHIIQSFXIVVIGYVWSW
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IWXEFMPMHEHIHIVIRHETVSTSVGMSRERHSWIKYVERËEESTVSHYXSVVYVEPIESWJSVRIGIHSVIWHI
10
Em 2013, o BNDES lançou o Programa para Construção e Ampliação de Armazéns (PCA), com taxa de juros de
3,5% a.a.
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PIZSYWIHSMWERSWTEVEUYIEWTVMQIMVEWUYEXVSGSQTERLMEWGSQIËEWWIQESJIVXEVWIKYVS
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ZIQWIRHSTVINYHMGEHE
11
O resseguro é uma forma de pulverização do risco, em que o segurador transfere a outra empresa, total ou
parcialmente, o risco assumido. Em resumo é um seguro do seguro.
12
Até 2007 o Brasil mantinha o mercado de resseguros em regime de monopólio por meio da estatal IRB-Brasil
RE. A abertura do mercado de resseguros, inclusive para empresas estrangeiras, foi possível com a publicação
da Lei Complementar nº 126/07. Essa abertura ocorreu de forma gradual e paulatina. Em 2014, 12 empresas
resseguradoras e 9 companhias de seguros estavam habilitadas para operar no PSR.
13
A primeira tentativa do governo federal de fomentar o seguro agrícola ocorreu em 1954, com a criação da
Companhia Nacional de Seguro Agrícola (CNSA) e a instituição do Fundo de Estabilidade do Seguro Agrário,
que visava dar garantias ao sistema. No entanto, a estruturação dos produtos, isto é, a criação dos seguros
de São Paulo era atuante no setor. Em 1966, com a promulgação da denominada Lei de Seguros (Decreto-Lei nº
73, de 21-11-1966), a CNSA foi dissolvida, tendo sido criado o Fundo de Estabilidade do Seguro Rural (FESR).
Tal fundo, ainda em vigor, é gerido atualmente pelo IRB-Brasil RE S/A e tem como objetivo oferecer cobertura
suplementar às seguradoras na eventualidade de uma catástrofe (MAIA, 2011, p. 1-2).
'ETÑXYPS3XVMTÍHETSPÑXMGEEKVÑGSPEFVEWMPIMVEGVÍHMXSVYVEPWIKYVSI4VSREJ
Tabela 4. Programa de subvenção econômica ao prêmio do seguro rural, de 2005 a 2013.
Ano
Importância
segurada
(R$)
Área
segurada
(ha)
Apólice
(Unidade)
Número de
produtores
Prêmio de
seguro
(R$)
Subvenção
(R$)
2005
126.637.756
68.148
849
849
8.684.371
2.314.919
2006
2.869.325.774
1.560.349
21.779
16.653
71.119.010
31.121.861
2007
2.706.036.105
2.276.245
31.637
27.846
127.741.170
60.961.993
2008
7.209.176.951
4.762.902
60.120
43.642
324.744.319
157.544.956
2009
9.684.244.863
6.669.296
72.737
56.306
477.785.800
259.610.965
2010
6.541.634.782
4.787.641
52.880
38.211
368.169.101
198.277.600
2011
7.339.468.652
5.582.137
57.885
40.109
466.393.330
253.451.980
2012
8.782.214.959
5.243.272
63.328
43.538
571.375.578
318.167.934
2013
16.843.679.547
9.603.429
101.850
65.556
1.001.347.383
557.852.228
Fonte: Brasil (2014c).
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14
a falta de planejamento no seguro rural, durante o lançamento do PAP 2014/2015, em 19 de maio de 2014, o
governo federal anuncia a postergação da Resolução Bacen nº 4.235 para 1° de julho de 2015.
15
Em estudo recente, o Dr. Vitor Ozaki desenvolveu uma metodologia para calcular qual deve ser o valor orçamentário
médio do PSR para cobrir 100% do custeio das lavouras. Para 2011, os resultados sugerem que o volume de
recursos deveria ter sido quatro vezes maior do que o valor empenhado (R$ 253 milhões). Considerando-se o
mesmo percentual de 2011 (quase 55%), o orçamento do PSR para 2012 e 2013 deveria ser aproximadamente
igual a R$ 1 bilhão (OZAKI, 2013). No entanto, uma atualização dos valores indica que o crédito rural de custeio
entre 2011 e 2013 apresenta crescimento em torno de 35%.
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Figura 7. Comparação entre o plano trienal, valor orçado e valor pago no PSR, de 2005 a 2015.(1)
(1)
Valor orçado é o orçamento no começo de cada ano civil na Lei Orçamentária Anual (LOA), não considerando os créditos suple-
mentares ao longo do ano civil. O governo ainda não havia efetuado pagamentos até abril de 2014.
Fonte: Federação da Agricultura do Estado do Paraná (2014).
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Figura 8. Total de culturas contempladas com estudos de zoneamento agrícola de risco climático.
Fonte: Brasil (2014d).
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16
O Pronaf foi criado em 1995, inicialmente como uma linha de crédito de custeio para ser disponibilizada para a
agricultores que exploram e dirijam estabelecimentos rurais na condição de proprietários, posseiros, arrendatários,
parceiros e comodatários, e atendam simultaneamente aos seguintes requisitos: i) não possua, a qualquer título,
de obra familiar; iii) obtenha renda familiar originária, mínima, de atividades vinculadas ao estabelecimento; e iv)
resida no próprio estabelecimento ou em local próximo (BRASIL, 1996). Esses critérios foram institucionalizados
a partir da Lei Federal nº 11.326/2006, que estabeleceu as diretrizes para a formulação da Política Nacional da
Agricultura Familiar e Empreendimentos Familiares Rurais (BRASIL, 2006).
17
Ver Navarro (2010) e Navarro e Pedroso (2011) para uma análise detalhada do processo de institucionalização da
agricultura familiar no Brasil.
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18
Secretaria da Agricultura Familiar: nossos programas. Disponível em: <http://portal.mda.gov.br/portal/saf/
institucional/maisalimentos>. Acesso em: 28 maio 2014.
19
Presidência da República. Mensagem ao Congresso Nacional 2014 – Capítulo II: Desenvolvimento Inclusivo e
Erradicação da Pobreza Extrema. Disponível em: <http://www.congressonacional.leg.br/portal/docs/Mensagem
PresidencialCongresso2014.pdf>. Acesso em: 28 maio 2014.
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Tabela 5. Instrumentos do Plano Safra da Agricultura Familiar, 2013/2014.
Programa Pronaf
Descrição
Valor (R$)
Crédito Pronaf
Política de crédito para custeio e investimento oferecida
pelo Ministério do Desenvolvimento Agrário (MDA)
21 bilhões
Assistência Técnica e
Extensão Rural (Ater)
Oferta de assistência técnica para a agricultura familiar
830 milhões
Garantia-Safra
Garantia de renda caso os agricultores tenham perdas
de pelo menos 50% da produção agrícola no Semiárido
980,3 milhões
Seguro da Agricultura
Familiar
Mecanismo de proteção para os agricultores que
400 milhões
Pronaf
Programa Garantia de
Preço da Agricultura
Familiar (PGPAF)
33 milhões
do Pronaf Custeio ou Investimento em caso de queda
de preços no mercado
Programa de Aquisição de Programa de aquisição dos produtos da agricultura
Alimentos (PAA)
familiar ou de suas organizações
1,2 bilhão
Programa Nacional de
Alimentação Escolar
(Pnae)
Aquisição de produtos da agricultura familiar, de
assentados da reforma agrária, comunidades
tradicionais indígenas e quilombolas para alimentação
escolar
1,1 bilhão
Programa Garantia Preço
Mínimo (PGPM)
Garantia de preço mínimo para os produtos da
agricultura familiar
Outras ações
Total
Fonte: adaptação dos autores com base em Brasil (2014a).
200 milhões
13,3 bilhões
39,04 bilhões
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