Pgr Alega Inconstitucionalidade De Norma Sobre Crimes Previdenciários

A inclusão, na Medida Provisória (MP) que versa sobre a realização da Copa do Mundo e da Copa das Confederações no Brasil, de dispositivo que trata do envio, ao Ministério Público, de representação fiscal para fins penais relativa aos crimes contra a Previdência Social, é contestada pela Procuradoria Geral da República (PGR), em Ação Direta de Inconstitucionalidade (ADI 4980) ajuizada no Supremo Tribunal Federal (STF).

Trata-se da MP 497/2010, convertida na Lei 12.350/2010. De acordo com a PGR, ainda que em caráter de excepcionalidade, o STF admite o controle de constitucionalidade dos requisitos para a edição de uma medida provisória – relevância e urgência. E “a conversão [da MP em lei] não tem o condão de convalidar a norma originalmente viciada”, sustenta. Reporta-se, neste contexto, a decisões da Suprema Corte no julgamento das ADIs 3330 e 3090, relatadas, respectivamente, pelos ministro Ayres Britto (aposentado) e Gilmar Mendes.

O caso

A lei derivada da MP 497/2010 inseriu em seu texto uma alteração no artigo 83 da Lei 9.430/1996. Tal artigo disciplina o envio da representação fiscal para fins penais ao Ministério Público, fixando a necessidade de prévio esgotamento das instâncias administrativas. A MP – e a Lei 12.350/2010, que resultou da sua conversão –, incluiu no artigo os crimes contra a Previdência Social, previstos nos artigos 168-A e 337-A do Código Penal. A PGR alega inconstitucionalidade no que se refere aos crimes de natureza formal, especialmente o de apropriação indébita previdenciária (artigo 168-A do CP), por ofensa aos artigos 3º; 150, inciso II; 194, caput e inciso V, e 195 da Constituição Federal (CF), bem como ao princípio da proporcionalidade, sob a perspectiva da proteção deficiente.

Observa que a MP 497 “violou a limitação à edição de medida provisórias, contemplada no artigo 62, parágrafo 1º, inciso I, letra “b”, da CF, ao tratar de matéria penal e processual penal, vedada por tal dispositivo.

A PGR lembra que a alteração do artigo 83 da Lei 9.430/1996 originou-se, segundo a exposição de motivos que acompanhou a MP, da necessidade de ajustar a legislação previdenciária ao tratamento normativo conferido aos demais tributos. Serviria para corrigir uma omissão surgida por ocasião da criação da Secretaria da Receita Federal do Brasil ou Super-Receita, em 2007, no sentido de uniformizar o procedimento adotado para os crimes previdenciários com aquele adotado para os crimes tributários.

No entanto, segundo a Procuradoria, de 2007 a 2010 passaram-se três anos, o que não sustenta o argumento da inexistência de tempo hábil, a título de urgência, para regulamentar a matéria por lei ordinária.

“Em verdade, aproveitou-se a edição da medida provisória que versa sobre questão verdadeiramente urgente e relevante – a realização da Copa do Mundo e da Copa das Confederações, no Brasil – para inserir dispositivo absolutamente estranho à matéria”, afirma a autora.

Pedido

Presentes os pressupostos – fumaça do bom direito e perigo na demora de uma decisão –, a PGR pede a concessão de liminar para suspender a eficácia do artigo 83 da Lei 9.430/1996, com a alteração promovida pela Lei 12.350/2010, no que se refere aos crimes formais, especialmente o de apropriação indébita previdenciária.

No mérito, pede a declaração de inconstitucionalidade do dispositivo. Subsidiariamente, requer seja dada interpretação conforme a Constituição ao texto impugnado para declarar que os delitos formais, sobretudo o de apropriação indébita previdenciária, consumam-se independentemente do exaurimento da esfera administrativa.

Rito abreviado

O relator da ação, ministro Celso de Mello, adotou ao caso o rito abreviado previsto no artigo 12 da Lei 9.868/1999 (Lei das ADIs). Desse modo, o processo será apreciado pelo Plenário do STF diretamente no mérito, sem prévia análise do pedido de liminar. O ministro determinou também que a Presidência da República, a Câmara dos Deputados e o Senado Federal prestem informações sobre a norma questionada, no prazo de dez dias.

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