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Posicionamento ABES: Marco Legal do Saneamento – o critério para as mudanças deve ser o atendimento à população

14/04/2021 Redação ABES

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Posicionamento ABES: Marco Legal do Saneamento

O critério para as mudanças deve ser o atendimento à população. A redução dos déficits de atendimento do setor de saneamento exige um processo organizado

Após a aprovação da Lei 14.026 e da manutenção dos vetos da Presidência da República, o setor de saneamento necessita discutir como organizar um processo de transição, de modo que não sejam interrompidos os serviços e os investimentos, para que não ocorra paralisia em situações de indefinição do arcabouço regulatório, e que todas as mudanças tenham como prioridade o atendimento à população brasileira.

A ABES -Associação Brasileira de Engenharia Sanitária e Ambiental-, considerando que a prioridade na discussão deva ser a manutenção dos serviços existentes e a mais rápida ampliação do atendimento nas áreas não servidas, em busca da universalização, vem a público propor a discussão imediata desse necessário processo de transição, considerando as diversas peculiaridades e condições objetivas trazidas pela nova legislação, para situações de contratos vigentes e de municípios sem contrato.

1)     Prazos adequados para adaptação dos contratos vigentes

A nova lei determina adaptações dos contratos vigentes até março de 2022 (Art. 11-B, §1º). Para a efetivação desse processo a lei instituiu uma série de atividades predecessoras:

a)      Processo de Regionalização, com a definição pelos estados até julho do corrente ano e adesão dos municípios até janeiro de 2022, nos casos não compulsórios. É necessário ainda considerar um prazo razoável para criação das estruturas de governança interfederativa, por exemplo, julho de 2022.

b)     Elaboração dos planos regionais para definição das metas, com prazo de 12 meses após a adesão dos municípios e constituição das estruturas de governança interfederativa. É razoável considerar um prazo até julho de 2023.

c)      Edição das Normas de Referência pela ANA, cuja Agenda Regulatória tem a conclusão prevista até dezembro de 2022.

É necessário discutir a instituição de uma transição exequível, que pode ser, por exemplo, um período mínimo de 12 meses após a edição da última Norma de Referência da ANA, tendo em vista a influência que as Normas terão sobre os contratos de prestação de serviços.

É necessário, ainda, levar em conta o atraso na edição do decreto federal que especifica as condições para avaliação da viabilidade econômico-financeira dos contratos existentes, o qual deveria ter sido promulgado até 90 dias após a sanção da lei.

Para maior segurança jurídica, seria necessário prever expressamente na lei a transição entre modelos, com dispositivo que permita o reequilíbrio dos contratos vigentes com extensão de prazo e/ou ajuste tarifário, visando cumprir as metas de universalização até 2033, conforme já previsto no Decreto 10588/2020 (Art. 3º, VIII e §1º).

2)     Procedimento para operação de transição nos municípios que não têm contrato ou têm contratos vencidos com operadores públicos

Parte das operações em municípios atualmente atendidos pelas Cias. Estaduais ocorrem sem contrato. Com a manutenção do veto ao Art. 16 do novo marco legal, é necessário que esses municípios tenham uma transição adequada para o novo modelo, pois os serviços não podem sofrer solução de continuidade, até que se formalize um novo contrato.

Essa transição obriga o cumprimento de diversas etapas, da mesma forma que para municípios com contratos vigentes. Considerando os prazos indicados para elaboração das Normas de Referência pela ANA, para a regionalização (adesão dos municípios e constituição das estruturas de governança interfederativa) e para a elaboração dos planos regionais, os municípios agrupados que aderirem às unidades regionais somente teriam condições efetivas de publicar os editais de licitação a partir da metade de 2023, na melhor das hipóteses.

Estima-se que os processos licitatórios levem no mínimo 06 meses, para realização de audiência e consulta pública e processamento da licitação, o que indica que os novos contratos com os futuros prestadores de serviço seriam iniciados somente no princípio de 2024.

Há necessidade de os atuais operadores manterem as operações nesses locais em condições adequadas de atendimento à população, dado que a prestação de serviços essenciais não poderá ser descontinuada. Não há, entretanto, segurança jurídica para a realização dos investimentos necessários para manter os serviços com qualidade, regularidade e segurança adequadas atualmente, assunto que não foi tratado pelo novo marco legal do saneamento.

Para sanar essa lacuna, propõe-se discutir a instituição de contratos de transição, pelo período  mínimo até a conclusão das novas licitações de concessão, que garantam a continuidade da prestação dos serviços à população e deem garantias mínimas para a realização de investimentos neste período, bem como definam as regras para transferência para o futuro operador, considerando a indenização pelos ativos ainda não amortizados e o processo de regionalização conduzido pelos Estados ou pela União, quando ocorrer.

3)     Licitações e contratos que priorizem o atendimento à população

É preocupante o que se tem visto nas licitações recentes, em que o atendimento à população não é o critério decisivo. Processos licitatórios baseados em maior outorga ao poder concedente significam retirar recursos de um setor carente e deficitário, o que contraria todas as justificativas apresentadas para as mudanças legais e regulatórias do saneamento.

A ABES defende que os editais de licitação não tenham a outorga como fator de decisão, mas sim o atendimento às metas e a modicidade das tarifas. Quando houver outorga, esta deverá ser modesta em relação ao valor do empreendimento, de valor prefixado, e nunca paga no início do ciclo do contrato, mas sim ao longo do seu desenvolvimento. As outorgas deverão ter obrigatoriamente sua aplicação vinculada a ações de universalização do atendimento, por exemplo em saneamento rural e no saneamento integrado em áreas de ocupação irregular. É importante, ainda, que seja cumprido o preceito legal que veda a distribuição de dividendos na situação de contratos inadimplentes com as obrigações de atendimento.

4)     Discussão pública dos processos de regionalização

A lei 14.026/2020 fixa 15 de julho de 2021 como prazo para os Estados promoverem a regionalização dos serviços públicos de saneamento básico. Até essa data, sob pena de não terem acesso a recursos federais, onerosos ou não onerosos, cada um dos municípios de cada Estado deve alternativamente integrar região metropolitana, aglomeração urbana ou microrregião ou aderir a unidade regional de saneamento básico criada por lei ordinária estadual. As alternativas de regionalização, que abrangem não só os serviços de água e esgoto, mas também os de resíduos sólidos e de drenagem, têm impacto diretamente na viabilidade econômica e a sustentabilidade desses serviços essenciais e, portanto, nos interesses dos municípios e da população usuária ou ainda por atender.

A realidade dos estados da Federação é muito diversa. Não há soluções simples, e o que atende as condições de um estado muitas vezes não se aplicará a outros.

Essa é uma discussão que não pode ser conduzida de afogadilho, como um mero cumprimento de obrigação burocrática. É imprescindível que os governos estaduais deem publicidade às suas propostas de regionalização com as devidas justificativas, de modo a viabilizar sua ampla discussão por todos os interessados antes da aprovação de projetos de lei por suas Assembleias Legislativas.

A ABES entende que um processo de transição organizado a partir de regras claras e definidas previamente é do mais alto interesse de todos os envolvidos, principalmente da população usuária dos serviços, e conclama os órgãos governamentais e o Congresso Nacional a concentrarem esforços na definição dos mecanismos necessários, de modo a assegurar a manutenção dos serviços existentes e a mais rápida e segura expansão do atendimento.

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