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Transparency of Public Funds (BR0085)



Action Plan: Brazil National Action Plan 2016-2018

Action Plan Cycle: 2016

Status: Inactive


Lead Institution: Ministry of Transparency, Oversight and Comptroller, General of Brazil, Ministry of Justice and Citizenship, Ministry of Planning, Development and Management, Ministry of Finance, Central Bank of Brazil, City Hall of São Paulo

Support Institution(s): Brazilian Institute of Tributary Planning, Institute for Socioeconomic Studies (Inesc), Social, Observatory of Brazil, Open Knowledge, Transparency Brazil

Policy Areas

Capacity Building, Fiscal Openness, Publication of Budget/Fiscal Information

IRM Review

IRM Report: Brazil Mid-Term Report 2016-2018

Starred: No

Early Results: Marginal

Design i

Verifiable: Yes

Relevant to OGP Values: Access to Information , Civic Participation

Potential Impact:

Implementation i



Lead government institution: Ministry of Transparency, Oversight and Comptroller General of Brazil. Civil servant in charge for implementing at lead government institution: Otávio Moreira de Castro Neves. Position - Department Director/Transparency and Control Department: E-mail Telephone: 55 61 2020 6538. Other involved actors: Government: Ministry of Transparency, Oversight and Comptroller General of Brazil Ministry of Justice and Citizenship Ministry of Planning, Development and Management Ministry of Finance Central Bank of Brazil City Hall of São Paulo. Civil society, private sector, group of workers and multilateral actors: Brazilian Institute of Tributary Planning Institute for Socioeconomic Studies (Inesc) Social Observatory of Brazil Open Knowledge Transparency Brazil. Status quo or problem/issue to be addressed: Legal and cultural constraints, which do not allow society to have data access and unrestricted information. Main objective: To enhance active transparency mechanisms about federal public resources Commitment short description Establishing ways of assuring information will be appropriated and effectively used by society, which will allow greater understanding and will also broaden social participation, providing a more effective monitoring. OGP Challenge addressed by the Commitment: Increase of Public Integrity Increase of corporative accountability. Commitment relevance: The strategic matrix will assure a greater effectiveness on ensuring access and effective use to data and public resource information. Goal: Disseminated and published unified actions of the Federal Government, with a structured governance model, which will foster effective use to data and public resource information by society

IRM Midterm Status Summary

2. Transparency of Public Funds

Commitment Text:

Formulate a strategic matrix of transparency actions, with broad citizen participation, in order to promote better governance and to ensure access and effective use of data and public resource information

The commitment aims to enhance active transparency mechanisms on federal public resources, that is, to improve actions related with information the State must disclose, without being demanded for. It establishes ways of assuring information will be appropriated and effectively used by society, which will allow greater understanding and will also broaden social participation, providing a more effective monitoring.

2.1 – Development of a Plan of Mobilization and Disclosure, in order to enhance participation, assuring best practices dissemination, related to public resource information

2.2 – Transparency Council restructuring

2.3 – Survey of initiatives, rules, systems and data (public or not), related to transparency and federal public resources

2.4 – Formulation of a strategic matrix, related to transparency actions, with identification of those in charge and deadlines

2.5 – Plan approval and dissemination

2.6 – Final report launch

Responsible institution: Ministry of Transparency, Oversight and Comptroller General of Brazil

Supporting institutions: Ministry of Justice and Citizenship, Ministry of Planning, Development and Management, Ministry of Finance, Central Bank of Brazil, City Hall of São Paulo, Brazilian Institute of Tributary Planning, Institute for Socioeconomic Studies (Inesc), Social Observatory of Brazil, Open Knowledge, Transparency Brazil

Start date: December 2016.. End date: November 2018

Context and Objectives

The commitment addresses the need to improve active transparency mechanisms at the federal level. The government aims to achieve this goal by improving the government disclosure of data in key active transparency initiatives, such as the Federal Transparency Portal. Specifically, the government expects to design a governance-model strategic matrix of key transparency actions. The matrix will highlight actions that promote the proactive disclosure of government information (i.e., the release of information before it is requested), as well as the appropriate and effective use of government information by civil society in monitoring government activities.

In December 2015, the government released an index of active transparency, the Escala Brasil Transparente (Brazilian Transparency Index).[1] The government based the index on its agencies’ responses to information requests at the federal, state, and municipal levels. The report makes clear that cities, in particular, need to improve their active transparency processes. In the 2017 index, only 2 percent of cities achieve the maximum score.[2] At the state level, the results were also poor: the state of Amapá had a score of zero, and Rio de Janeiro had the second lowest score (5 points out of 10).

The commitment’s level of specificity is medium. The commitment lists several deliverables. These include the formulation and publication of a strategic matrix with transparency actions, a restructuring of the Transparency Council, and a survey of transparency initiatives related to federal public resources. However, the full scope of many of the milestones is unclear, which makes it difficult to properly assess the activities.

The commitment has a minor potential impact, due to its mostly strategic nature. From civil society, the Institute for Socioeconomic Studies reported to the IRM that the commitment could have a major impact. It noted that current active transparency portals do not include (or include only limited) information about fiscal data and the composition of federal budget expenses. However, while the commitment could lead to important improvements in the future, most of the milestones refer to preliminary steps. For example, the main deliverable—the published matrix and report with key transparency actions—would include reforms to be implemented after the end date of the action plan.

The commitment focuses on using technology (such as the Transparency Portal and open data processes) to increase active transparency mechanisms, such as the Electronic System of Information Services to the Citizen and ombudsman channels such as the e-OUV (federal ombudsperson system). Thus, the commitment is relevant to the OGP values of access to information and technology and innovation. In addition, the commitment is relevant to civic participation because the government plans to 1) develop the strategic transparency actions together with civil society and 2) restructure and strengthen the Transparency Council, a forum that includes both government and civil society organizations.[3]


The commitment’s level of completion is limited.

As stated in the July 2017 implementation report,[4] the Ministry of Transparency, Oversight, and Comptroller-General produced the mobilization plan (milestone 2.1). The plan was submitted for public consultation among the civil society partners listed as supporting institutions in the commitment text. Nonetheless, the government received no feedback on the proposed content.

As for the restructuring of the existing Transparency Council (milestone 2.2), the government submitted a policy proposal for civic consultation at the portal in September 2017.[5] The new proposal aims to give the council a more active role and enable it to demand other agencies reply to its inquiries. The proposal was open for public consultation between 25 September 2017 and 24 October 2017. During this period of time, the proposal received more than 40 comments.[6] However, since the government proposed the policy after the cut-off date for this evaluation (June 2017), the milestone will be considered complete in the next IRM report.

The mapping of initiatives, norms, systems, and datasets related to federal resources (milestone 2.3) is underway. The open data portal stores an updated list of datasets available for download.[7] The Transparency Portal stored a set of norms and initiatives on federal transparency processes prior to the start of the action plan.[8] The government still has to update the list of initiatives at the state and city levels.

Milestone 2.4 has limited progress. This milestone refers to the elaboration of a strategic matrix to promote transparency initiatives. The milestone also includes initiatives related to the future delivery of a new transparency portal, a working group on data standards, and an event in Brasilia to advance the matrix debate. According to a government representative, these activities are planned. While discussions have begun, the activities have not been executed.

Milestones 2.5 and 2.6 have not started.

As mentioned in the action plan, milestones 2.1-2.3 were expected to be delivered by October 2017. Thus, the commitment is currently behind schedule.

Early Results (if any)

Due to the limited completion of the commitment, there is little evidence of early results. A civil society representative from the Institute for Socioeconomic Studies reported that the commitment’s implementation started in July 2017. However, it is important to mention that the government did carry out preliminary steps beforehand, such as hosting a monitoring meeting in February 2017 that included discussion of the commitment, as well as e-mailing minutes to and requesting suggestions from stakeholders in April 2017. The representative noted that the previously designed milestones are expected to be redefined by adopting a broader focus. The new milestones shift the focus from detailed fiscal transparency data.

Next Steps

The IRM researcher recommends completing the commitment. As next steps, the government should refine the focus of the commitment, because there is limited time left in the action plan. This means that beyond mapping possible areas for action, the government should be more specific about which challenges and opportunities the commitment will address.

[1] Mariana Damaceno, 'Government Launches Active Transparency Index,' Undersecretariat of Disclosure, last modified 9 December 2015,

[2] Carolina Pimentel, 'Less Than 2% of Municipalities Have a Maximum Grade in Transparency, Says CGU,' Da Agencia Brasil, last modified 20 November 2015,

[3] The full list of council members is available online on the CGU website:

[4] Ministerio da Transparencia, Fiscalizacao e Controladoria-Geral da Uniao, Relatorio de Status de Execucao de Compromisso,

[5] 'Pubic Consultation: Transparency Council,' Open Government Partnership, Brazil Federal Government,

[6] 'Consulta Pública: Minuta de Decreto de Reformulação do Conselho de Transparência Pública e Combate à Corrupcão,', 22 September 2017,

[7] 'Feature Datasets,',

[8] 'About the Portal—Legislation,' Portal de Transparencia, Ministerio da Transparencia e Controladoria-Geral da Uniao,


  1. Subnational Good Governance

    BR0100, 2018, Capacity Building

  2. Open Data Policy

    BR0101, 2018, Access to Information

  3. Scientific Data Governance

    BR0102, 2018, Access to Information

  4. Capacity-Building and Oversight on Nutrition Policy

    BR0103, 2018, Capacity Building

  5. Transport Data

    BR0104, 2018, E-Government

  6. Transparency and Oversight in Infrastructure Repair Processes

    BR0105, 2018, Capacity Building

  7. Increase Participation in Legislative Process

    BR0106, 2018, Capacity Building

  8. Urban and Rural Land Registers

    BR0107, 2018, E-Government

  9. Climate Change Policy Evaluation

    BR0108, 2018, E-Government

  10. Water Resource Management

    BR0109, 2018, Capacity Building

  11. National Electronic System/ATI implementation

    BR0110, 2018, Access to Information

  12. Open Data on the Federal Government

    BR0084, 2016, Access to Information

  13. Transparency of Public Funds

    BR0085, 2016, Capacity Building

  14. Access to Information Policy in the Federal Government – Promptness and Effectiveness to Information Requests

    BR0086, 2016, Access to Information

  15. Access to Information Policy in the Federal Government – Requesters’ Personal Information Safeguard

    BR0087, 2016, Access to Information

  16. Effectiveness of National Policy for Social Participation Mechanisms

    BR0088, 2016, Capacity Building

  17. Starred commitment Digital Educational Resources

    BR0089, 2016, Capacity Building

  18. Open Data and Information Governance in Health

    BR0090, 2016, Access to Information

  19. Prevention to Torture and Mean, Inhuman, or Humiliating Treatments in the Penitentiary System

    BR0091, 2016, Access to Information

  20. Innovation Spaces for Management in Public Services

    BR0092, 2016, Capacity Building

  21. Assessment and Streamline of Public Services

    BR0093, 2016, E-Government

  22. Open Innovation and Transparency in the Legislative

    BR0094, 2016, Capacity Building

  23. Fostering Open Government in States and Municipalities

    BR0095, 2016, Capacity Building

  24. Transparency and Innovation in the Judiciary

    BR0096, 2016, Access to Justice

  25. Social Participation in Federal Government’S Planning Cycle

    BR0097, 2016, E-Government

  26. Open Data and Active Transparency in Environment Issues

    BR0098, 2016, Access to Information

  27. Mapping and Participatory Management for Culture

    BR0099, 2016, Access to Information

  28. Probity Defense and Asset Recovery

    BR0033, 2013, Anti-Corruption

  29. Development of a Methodology for Social Participation on the Monitoring of the Pluriannual Plan (PPA) and on the Formulation of the Federal Public Budget

    BR0034, 2013, Capacity Building

  30. Development of the Monitoring System for the Social Movements Demands

    BR0035, 2013, Capacity Building

  31. Capacity-Building of Educators, Political Agents, Public Managers, Councilors for Social Policies and Community Leaderships

    BR0036, 2013, Capacity Building

  32. Encourage States and Municipalities to Endorse the OGP Four Principles

    BR0037, 2013, Capacity Building

  33. Implementation of the ODP.Nano

    BR0038, 2013, Fiscal Openness

  34. Strengthening of the Office of the Comptroller General (CGU)

    BR0039, 2013, Anti-Corruption

  35. Online Accountability of Resources for Education Within the National Fund for Education Development

    BR0040, 2013, E-Government

  36. Generation of Knowledge and Capacity-Building of Managers and Public Resources Operator’S Partners and of Councilors for Social Control

    BR0041, 2013, Capacity Building

  37. National Program for Strengthening School Councils

    BR0042, 2013, Capacity Building

  38. Development of a Unified and Interactive Information Panel on the Implementation of the Water for All Program, Which Can Be Publicly Accessed Through the Internet

    BR0043, 2013, Capacity Building

  39. Digital Inclusion of Health Councils

    BR0044, 2013, E-Government

  40. Starred commitment Development of Tools for Increasing Transparency and Enhancing Land Governance

    BR0045, 2013, E-Government

  41. Implementation of the Document Management Policy in the Federal Government

    BR0046, 2013, Capacity Building

  42. Development of the “Access to Information Library”

    BR0047, 2013, Access to Information

  43. Disclosure of Data from the Execution of the Union Budget and from Government Purchases

    BR0048, 2013, Access to Information

  44. Dissemination of the Public Open Data Culture to the Local Governments

    BR0049, 2013, Access to Information

  45. Development of Support Technologies and Licensing Models for the Disclosure of Open Data

    BR0050, 2013, Access to Information

  46. Disclosure of Information from Government Systems in an Open Data Format

    BR0051, 2013, Access to Information

  47. Corporative Information Management in Social Security (E-Governance)

    BR0052, 2013, E-Government

  48. Improvement of Active Transparency and of the Unique Health System’ Ombudsman Unit

    BR0053, 2013, Dispute Resolution & Legal Assistance

  49. Strengthening of the National Audit System of the Unique Health System (SUS)

    BR0054, 2013, Anti-Corruption

  50. Increasing Public Transparency of the Labor Relations Secretariat of the Ministry of Labor and Employment

    BR0055, 2013, E-Government

  51. Disclosure of Recommendations to Carry Out Public Audiences to Serve as Reference for the Government

    BR0056, 2013, Capacity Building

  52. Development of a Database of the Federal Public Administration Purchases Prices

    BR0057, 2013, Anti-Corruption

  53. Participatory Audits on the Constructions of Brazilian Host Cities for the 2014 FIFA World Cup

    BR0058, 2013, Anti-Corruption

  54. Development of an Indicators Model for Transparency of Brazilian Municipalities Institutional Development

    BR0059, 2013, Capacity Building

  55. Development of a Brazilian Portal for the Open Government Partnership (OGP)

    BR0060, 2013, E-Government

  56. Development of Monitoring Reports on the Electronic Citizen Information System (e-SIC)

    BR0061, 2013, Access to Information

  57. Encouragement of Social Participation

    BR0062, 2013, Anti-Corruption

  58. Formulation and Implementation of the Ministry of Defense’S Information Management Policy

    BR0063, 2013, Peace & Security

  59. Development of a Database of Administrative Documents Produced by Brazil’S Navy

    BR0064, 2013, Public Participation

  60. Open Educational Data

    BR0065, 2013, Access to Information

  61. Improvement of Data Transparency from the National Consumer Protection Information System (Sindec)

    BR0066, 2013, Access to Information

  62. Restructuring of the Brazilian Federal Government Transparency Portal

    BR0067, 2013, Access to Information

  63. Electronic System for Public Consultations

    BR0068, 2013, E-Government

  64. Improvement of Health Services Through the Increased Use of the National Health Card

    BR0069, 2013, Health

  65. Participatory Development of the Federal Ombudsman System

    BR0070, 2013, Justice

  66. “Brazil Transparent” Program

    BR0071, 2013, Access to Information

  67. Development of the Unique Health System Letter

    BR0072, 2013, Health

  68. Digital Cities Project

    BR0073, 2013, E-Government

  69. Development of the National System for the Promotion of Racial Equality (SINAPIR)

    BR0074, 2013, Human Rights

  70. Improvement of Mechanisms for Social Participation in the Formulation of Public Policies

    BR0075, 2013, Public Participation

  71. Brazilian Portal for Social Participation

    BR0076, 2013, E-Government

  72. Open Data in the Ministry of Justice

    BR0077, 2013, Access to Information

  73. Improvement of the Pro-Ethics Company Registry

    BR0078, 2013, Private Sector

  74. Expansion of the Database of the National Debarment List (CEIS):

    BR0079, 2013, Anti-Corruption

  75. Monitoring of the National Plan for Food and Nutrition Security (PLANSAN)

    BR0080, 2013, Health

  76. Development of an Information System on the Maria Da Penha Law (Law No. 11,340/2006)

    BR0081, 2013, Gender

  77. Development of Processes for Prior Consultation Under the 169 Convention of the International Labour Organization’S (ILO)

    BR0082, 2013, Labor

  78. Redesign of the Current Protection Programs

    BR0083, 2013, Dispute Resolution & Legal Assistance

  79. Capacity Building Programs

    BR0001, 2011, Access to Information

  80. Distance Education Program

    BR0002, 2011, Access to Information

  81. Guide for Public Officials on Access to Information

    BR0003, 2011, Access to Information

  82. Information Services Model

    BR0004, 2011, Access to Information

  83. Diagnostic Study on the Transparency Values of Executive Branch

    BR0005, 2011, Access to Information

  84. Diagnostic Study on Role of Federal Ombudsman Units (FOUs)

    BR0006, 2011, Access to Information

  85. Research Study to Identify the Demands of Society in Regard to Access to Information

    BR0007, 2011, Access to Information

  86. Preparation of a Catalogue of Public Data and Information

    BR0008, 2011, Capacity Building

  87. Organization of a Meeting of the Inter-Council Forum Multi-Year Plan 2012–15 (Phase 2)

    BR0009, 2011, Capacity Building

  88. Organization of the 1st National Conference on Transparency and Social Control (1St Consocial)

    BR0010, 2011, Capacity Building

  89. Organization of the 1st National Open Data Meeting

    BR0011, 2011, Access to Information

  90. Organization of the National Seminar on Social Participation

    BR0012, 2011, Capacity Building

  91. Partnership with the Digital Culture Laboratory

    BR0013, 2011, Access to Information

  92. Partnership with World Wide Web Consortium (W3C) Brazil

    BR0014, 2011, Access to Information

  93. Development of the National Open Data Infrastructure (INDA)

    BR0015, 2011, Access to Information

  94. INDA Capacity Building Plan

    BR0016, 2011, Access to Information

  95. INDA Awareness- Raising Activities

    BR0017, 2011, Access to Information

  96. Launch of the Brazil Open Data Portal

    BR0018, 2011, Access to Information

  97. Resource Transfer Agreements and Contract System (SICONV)

    BR0019, 2011, Access to Information

  98. Aquarius Platform

    BR0020, 2011, Access to Information

  99. Data Warehouse

    BR0021, 2011, E-Government

  100. Restructuring the Transparency Portal

    BR0022, 2011, Access to Information

  101. Facilitate Access to Specific Databases

    BR0023, 2011, E-Government

  102. Interactive School Development Plan

    BR0024, 2011, E-Government

  103. Control Panel for the Integrated Monitoring and Oversight System (Public Module)

    BR0025, 2011, E-Government

  104. United Suppliers Registry (SICAF)

    BR0026, 2011, Access to Information

  105. Registry of National Education Prices

    BR0027, 2011, Anti-Corruption

  106. Contractual Management of IT Services

    BR0028, 2011, Anti-Corruption

  107. Implementation of Pro-Ethics Company Registry

    BR0029, 2011, Private Sector

  108. Systemic Integration of Ombudsman Units

    BR0030, 2011, Dispute Resolution & Legal Assistance

  109. Continued Training for Public Ombudsman Units

    BR0031, 2011, Capacity Building

  110. Public Services Portal

    BR0032, 2011, Access to Information

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