Adiamentos expõem improvisos e falhas do acordo entre Petrobras e CADE para privatização de refinarias
CartaCapital
Após quase quatro anos da assinatura do Termo de Compromisso de Cessação de Prática (TCC) entre o CADE e a Petrobras para a venda de 8 das 13 refinarias controladas pela empresa, ficam evidentes os improvisos e falhas deste acordo e a falta de comprovação de benefícios concretos à sociedade.
O TCC é consequência do inquérito administrativo que foi aberto contra a Petrobras no âmbito do CADE, para investigar supostas condutas anticompetitivas da empresa no mercado de refino. Ao invés de se defender das acusações imputadas, a diretoria da Petrobras à época preferiu firmar este “termo de compromisso” para suspender o inquérito e, a toque de caixa, se desfazer de ativos estratégicos a pretexto de “propiciar condições concorrenciais e a entrada de novos agentes econômicos no mercado de refino”.
No entanto, o prazo para a conclusão dessas operações já foi adiado cinco vezes. O último adiamento foi solicitado pela Petrobras no final de 2022. Diferentemente da premissa estabelecida no TCC, a transferência do controle das refinarias não tem se mostrado bom negócio nem para a Petrobras, dadas as condições desvantajosas das propostas econômico-financeiras apresentadas, e muito menos para a sociedade e a proteção dos consumidores, dados os riscos efetivos de se criarem monopólios privados regionais e do aumento do preço praticado aos consumidores.
O CADE não possui competência para tratar da política energética nacional. A definição de diretrizes estratégicas para a política energética e para as atividades relativas ao monopólio do petróleo, inclusive o refino, é atribuição do Conselho Nacional de Política Energética (CNPE) e da Agência Nacional do Petróleo, Gás Natural e Biocombustíveis (ANP), de acordo com a Lei nº 9.478/1997.
O refino do petróleo continua sendo monopólio da União (art. 177 da CF), que delegou sua regulação e fiscalização especificamente ao CNPE e à ANP. Essa regulação abrange, inclusive, as políticas de promoção da livre concorrência (art. 1º, IX, da Lei nº 9.478/1997; art. 1º, “i”, do Decreto Nº 3520/2000). A Lei de Defesa da Concorrência (Lei nº12.529/2011) estabelece as diretrizes gerais da política concorrencial, cuja incidência se refere ao mercado de forma ampla. Nos setores regulados da economia, dadas as especificidades e características próprias de suas atividades, deve prevalecer o que dispõe a legislação específica. A competência funcional é sempre atribuída por lei.
Além disso, as políticas públicas de defesa da concorrência devem ser coadunadas com os demais princípios da ordem econômica constitucional (art. 170 da CF). Não há hierarquia entre eles, tampouco há no ordenamento jurídico a caracterização de que a dominação dos mercados seria, por si só, ilícita. A legislação trata de punir somente as práticas abusivas dessa posição. Importa destacar ainda que, o titular dos bens jurídicos tutelados pela Lei de Defesa da Concorrência é a coletividade e não a concorrência em si.
» Leia também outros artigos sobre Regulação. Clique aqui.
Nesse sentido, é indevida a atuação do CADE ao acolher a tese apresentada pela Associação Brasileira dos Importadores de Combustíveis (Abicom), de que a posição dominante da Petrobras no mercado de refino consistiria em abuso de poder econômico. No despacho que deu causa à abertura do inquérito administrativo, o presidente do CADE afirma não vislumbrar “uma prática ilícita evidente (da Petrobras)”, mas que a estrutura do mercado de refino tornaria propícia a prática de atos abusivos. Ora, o que a legislação pune é o abuso de posição dominante, e não a posição que determinada empresa ocupa no mercado.
Não há precedentes na história do CADE de uma decisão de tamanha envergadura, que modifica a estrutura do mercado de refino, sem que haja uma apuração e comprovação de eventuais abusos.
Mais de 25 anos após o fim da exclusividade da atuação da Petrobras nas atividades econômicas relacionadas ao petróleo, não houve aumento significativo do investimento privado voltado ao setor do refino. A tentativa de transferir o controle das refinarias públicas para a iniciativa privada por meio do TCC, além das nulidades que podem ser futuramente suscitadas, não demonstrou até o momento nenhum benefício para a economia do país, para a garantia de abastecimento do mercado nacional e para os consumidores.
Enquanto isso, seguem suspensos os investimentos para ampliação da capacidade de produção de derivados, ao passo que a demanda nacional e internacional por esses combustíveis segue crescente. Uma das consequências é a redução paulatina do fator de utilização das refinarias nacionais e o aumento da dependência da importação de combustíveis. Em 2013, segundo dados da ANP, o fator de utilização das refinarias chegou ao recorde histórico de 98,2%, recuando para pouco mais de 73% em 2021.
Para restabelecer a coordenação da política energética nacional, o novo governo e a nova direção da Petrobras devem pôr fim a este “termo de compromisso” firmado entre o CADE e a Petrobras e avaliar a anulação das privatizações feitas por este instrumento.
Artigo publicado originalmente em CartaCapital.
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