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Continuação 3: Mendonça de Barros e Resende acusados de improbidade

Autor

9 de dezembro de 1998, 23h00

33 – Merecem destaque, para efeito de uma melhor ilustração do emprego de artifícios tendenciosos, na condução do processo de privatização do sistema Telebrás, bem como do desatendimento às especificações legais que regem a matéria, alguns comentários tecidos pelo ex-Ministro das Comunicações que além de apontarem para sua confissão acerca do inteiro teor contido nas fitas, tipificam suas condutas ilícitas. Continuemos, desta vez com amparo nas novas indagações engendradas pelo Senador Eduardo Suplicy:

O SR. EDUARDO SUPLICY (Bloco/PT-SP) – Sr. Ministro Luiz Carlos Mendonça de Barros, V. Exª menciona que há expressões que não coadunam com o padrão de V. Exª e requer que consideremos a tensão e o excesso de trabalho naqueles dias, mas ainda fico preocupado. Será que, porventura, conforme está hoje registrado na Carta Capital, quando V. Exª, em diálogo com o Presidente André Lara Resende, do BNDES, referiu-se aos “babacas”, dizendo respeito, então, ao Ministro Pedro Malan e ao Secretário Executivo, Pedro Parente, aquilo queria dizer que S. Exªs estavam colocando alguma restrição ao que poderia ser a quebra do princípio da impessoalidade ou do que está registrado nas leis que definem os atos de improbidade administrativa?

Será que V. Exª realmente sabe o que está escrito, por exemplo, na lei sobre os atos de improbidade administrativa, que “facilitar ou concorrer por qualquer forma para a incorporação de patrimônio de pessoa física ou jurídica, de bens, rendas, verbas ou valores integrantes do acervo patrimonial das entidades mencionadas no art. 1º desta lei” não poderia ser feito? Ou que “permitir ou facilitar a aquisição, permuta ou locação de bem integrante do patrimônio de qualquer das entidades referidas no art. 1º desta lei” também não poderia ser feito?

Há muitos outros itens que eu poderia aqui citar. Tenho a certeza de que os Senadores vão querer ouvir em depoimento – vamos requerê-lo. Acredito que seja inevitável agora a realização de uma CPI. Muitos dos Srs. Senadores, inclusive da base governamental, disseram-me que, dependendo dos esclarecimentos de V. Exª, poderiam assinar o pedido. Mas, agora, diante do que está sendo revelado, o Sr. André Lara Resende informando ao Pérsio Arida, Diretor do Banco Opportunity e, acredito, seu ex-sócio em entidade privada – isso teremos a oportunidade de perguntar: “Vai lá e negocia. Faz o preço para baixo. Depois, na hora, se precisar, a gente sobe e ultrapassa o limite”.

Na avaliação de V. Exª, esse comportamento do Presidente André Lara Resende é algo que está de acordo com a observância do princípio da impessoalidade, da isenção, já que V. Exª e o Presidente André Lara Resende eram condutores, eram juízes?

Uma coisa é a tensão, o excesso de trabalho. Mas será que, porventura, V. Exª se referiu com aqueles termos ao Ministro Pedro Malan porque S. Exª estaria achando que já seriam demais os procedimentos dessa ordem?

V. Exª mencionou que não procurou conduzir nada que pudesse significar a vinda dos italianos, mas, quando disse ao Presidente André Lara Rezende, do BNDES: “Temos que fazer os italianos na marra, que estão com o Opportunity”…”Fala para o Pio Borges (vice-presidente do BNDES) que vamos fechar daquele jeito que só nós sabemos fazer”. Realmente, essa frase significa um procedimento totalmente isento?

Concluindo, Sr. Presidente, V. Exª, Sr. Luiz Carlos Mendonça de Barros, mencionou o procedimento do Deputado Aloízio Mercadante, referido com elogios pelo Sr. André Lara Rezende, que teria sido ele quem havia divulgado as fitas. O Deputado Aloízio Mercadante mencionou que de maneira alguma isso é verdade, porque ele apenas tomou conhecimento do relato das fitas e que levou ao conhecimento, pessoalmente, de André Lara Rezende, externando a sua preocupação, o seu estarrecimento com o conteúdo das fitas, dizendo ao seu colega economista que estava impressionado: como poderia o seu amigo, o economista por quem tem tanto respeito, agir daquela maneira com o Opportunity, empresa dirigida pelo ex- Presidente do Banco Central, ex-Presidente do BNDES e que havia sido seu sócio no Banco Matrix!

Eu gostaria que V. Exª esclarecesse o que realmente disse, se conversou com André Lara Resende antes de afirmar o que o próprio André Lara Rezende diz que não ocorrera, pois Aloízio Mercadante não entregou as fitas porque nunca esteve de posse das mesmas.

O SR. MINISTRO DAS COMUNICAÇÕES (Luiz Carlos Mendonça de Barros) – Com relação à primeira observação, volto a reafirmar que, no meu entendimento, estávamos, ao tentar manter o consórcio do Opportunity com a Previ e os italianos, em condição de entrar no leilão, buscando atingir exatamente aquilo que é o centro do processo de uma licitação de um bem público, que é criar condições para que o maior preço possa ser obtido.


34 – Pareceu-nos da análise do dito acima, que ao justificar sua conduta aos DD. Membros do Senado Federal, o ex-Ministro das Comunicações, muniu-se da soberba habitual daqueles que se julgam ao largo e acima da lei e que em nada é compatível com o comportamento que seria esperado em virtude do cargo por ele ocupado, e aliás com a situação que despontava, sobrepondo seu “entendimento” à todo o arcabouço jurídico aplicável ao caso, bem assim à magnitude do “negócio”, parecendo desconhecer, e o que é pior, desdenhar flagrantemente dos mais basilares princípios norteadores da atividade da Administração Pública em geral, especialmente porque a Lei nº 8666/93 espancou qualquer margem de discricionariedade ao agente público, no que diz respeito à preservação do caráter competitivo do processo licitatório.

35 – Note-se ainda, ilustre Representante do Ministério Público Federal que a soberba demonstrada, de per si não tipifica ilícito penal, mas sim e apenas, desvio de personalidade. Mas é certo que a soberba quando utilizada na prática de ilegalidade, servindo-se de instrumento para a gradação da pena, diferenciando sim, a culpa do dolo, fixando agravantes e atenuantes.

36 – Isso não bastasse, detecta-se no trecho abaixo transcrito nova confissão, mais uma vez fundada naquilo que se convencionou denominar dito popular, no sentido de que “os fins justificam os meios”, desta forma:

“Façamos apenas uma reflexão: supondo que os italianos não tivessem ganho a Tele Centro Sul, eles ganhariam a Tele Norte Leste, pagando mais de R$1 bilhão acima do que foi vendido. Esse seria o resultado da nossa ação, que, como eu disse, independente de palavras que foram ditas, a ação foi no sentido de preservar a disputa.

E vou lhe dizer uma coisa, Senador, até estive conversando isso com o André ontem: poderíamos ter sido omissos, poderíamos ter, simplesmente, deixado. Está bom, se a Previ quer desmontar o consórcio italiano e ter apenas um consórcio da Telemar, está bem! O resultado teria sido o mesmo, e não estaríamos aqui. O que é uma coisa triste é que, de repente – o que o André disse outro dia -, o mocinho vira bandido. Quer dizer, a pessoa que se empenha para tentar transformar o leilão naquilo… O êxito já estava estabelecido, porque estamos falando do leilão de doze empresas, onde em onze houve disputas, competições e ninguém fala delas. Estamos concentrados no leilão da Telemar. Isso me parece, Senador, também uma boa pista para entendermos o grampo, entendermos a divulgação disso pelos órgãos da imprensa. Parece-me uma boa pista.

Mas o André, eu, o Pio estávamos empenhados no objetivo de transformar o leilão não apenas num leilão exitoso, mas num leilão extraordinariamente exitoso. Isso nos levou a essa tensão e a essa tentativa, até o último instante… E uma tentativa exitosa, porque o resultado dessa tentativa não foi que o Banco Opportunity ganhou, o resultado dessa tentativa é que ele teve a condição de entrar na disputa, onde perdeu. Isso é o fulcro da questão.

Se tivéssemos sido burocráticos, se tivéssemos sido ausentes, deixado as forças de mercado se comporem… Só que a composição, nesse caso, era em detrimento do Tesouro, porque a saída da Previ – e isso foi dito com todos os “erres” e “esses” – desmontava o consórcio do Banco Opportunity e, com isso, o grupo Telemar arremataria, certamente, como arrematou, sem ágio.

O SR. MINISTRO DAS COMUNICAÇÕES (Luiz Carlos Mendonça de Barros) – Parece-me aqui – desculpe-me, Presidente – uma inversão motivada pela publicação parcial e criminosa, porque editada com o objetivo exatamente de dar nisso: essa impressão de que havia um trabalho de favorecimento.

O senhor cita a questão do ágio. O problema é que o Pérsio Arida disse ao André que a Previ queria pôr um teto, um limite no lance do leilão do Opportunity. E é a isso que o André se refere: “Se esse limite for inferior àquilo que vocês acham que deva ser o preço correto, dizem que põem um limite e dão um outro preço”. Então, esse diálogo é no sentido de aumentar o preço e não de diminuir. Isso foi um comentário que o André fez no sentido, assim, de uma sugestão, diante de um problema que estava sendo criado, não por nós. E, de novo, nós poderíamos ter ficado ausentes.

O interessante é que a ação correta passa a ser incorreta. E o senhor acaba de dar um exemplo muito claro. O senhor leu esse trecho da conversa como se o André estivesse dizendo: “Reduza o seu preço; e vá contra o interesse do Tesouro”. Mas não é isso o que está escrito, se for lido com cuidado. Ele diz o seguinte: “Se o teu problema é que a Previ quer colocar uma limitação de preço inferior àquilo que vocês acham que é correto, diz a ela que essa é a limitação e vocês é que vão dar o lance; depois, vocês dão”. No sentido do quê? Do bem, no sentido do aumento de preço.


37 – No trecho supra citado, é com nitidez que se verifica a manipulação da Previ para que não desmontasse o consórcio do ator principal (Banco Opportunity), e isto foi dito pelo ex-Ministro com todos os “erres” e “esses”.

38 – Quanto às informações prestadas pelo ex-Ministro acerca do ágio, nota-se a desassatez do Agente Público que, de forma pedagógica, orienta o amigo Pérsio Arida o modus faccendi a ser empregado com relação à Previ; escandalosamente se imiscuindo não só na formação dos concorrentes do certame, mas também, pelo menos de maneira insólida, sugerindo formas de traições internas entre os componentes do consórcio “eleito” pelo juiz do certame como do concorrente.

39 – Mas, tudo isso Exa., sempre “na melhor e boas intenções”. Já se disse e com razão que “de boas intenções o inferno está cheio”, mas não é este o caso dos autos, uma vez que do conjunto o que se deduz às escâncaras, é justamente a ação premeditada e simulada para favorecimento do ator principal (Banco Opportunity), propriedade dos amigos do ex-Ministro, os Senhores Dantas e Arida.

40 – E tudo Exa. foi dito pelo ex-Ministro perante o Senado Federal, sobre o olhar complacente do presidente do BNDES, o amigo André, que a tudo aquiescia com o seu silêncio e imobilidade cúmplices.

41 – Mas, no episódio da privatização do Sistema Telebrás, o presidente, aliás, ex-presidente do BNDES não quedou-se silente o tempo todo. Ao contrário, participou, concordou e engedrou junto com os amigos Mendonça de Barros e Arida, toda a cascata de ilegalidades praticadas e por tal participação, também responderá.

Da Graduação Da Pena

42 – Uma vez caracterizadas à exaustão as atividades ilícitas perpetradas pelo Agente Público e “demais colaboradores”, imperioso se faz o seu enquadramento nos tipos penais previstos na legislação que regem a matéria acerca da Privatização, tanto para efeito de responsabilização civil como criminal dos ora representados.

43 – Não se admite no caso, que estes fatos de gravíssima repercussão e efeitos, sejam relevados sob a argumentação de que a privatização já se consumou, pois isto seria a consagração da criminalidade e impunidade, ou seja homenagem ao “crime do colarinho branco”.

44 – Saliente-se ainda que a privatização não se consumou, posto que nos moldes em que se realizou, nem mesmo existiu, dada as flagrantes irregularidades e ilegalidades que a contaminaram. Portanto, a investigação de todos os fatos é necessária justamente para garantir e certificar a legitimidade do processo de privatização, sob pena deste ser anulado sem qualquer direito a indenização dos concorrentes, posto que sabedores de todo o ocorrido e de todas as normas pertinentes ao fato.

45 – Quanto à aplicação da pena, pouco importa, melhor dizendo, nada importa que o Sr. ex-Ministro das Comunicações estivesse repleto de boas intenções quando nitidamente conduziu o processo de privatização em debate; tal será somente considerado para efeito de mensuração da pena aplicável ao delito de improbidade administrativa, quando ocorrerá o sopesamento das agravantes e atenuantes.

46 – Assim a boa e má fé ou, a culpa e o dolo, ou ainda a extensão de eventual dano causado pelas atividades e condutas dos representados deverão ser levadas em consideração quando da aplicação da pena, posto que serão subsídios para a sua gradação.

47 – Portanto, em nada altera para a tipificação do ilícito, por exemplo, o intuito do ex-Ministro em aumentar ou reduzir o preço, posto que o que prevalece é, sem sombra de dúvida, o ato improbo já consumado e caracterizado, consistente no favorecimento desleal de um dos consórcios; mesmo que trate-se do sentido do “bem”, este aliás, conceito subjetivo e portanto passível de questionamento, não pode se sobrepor ao estrito cumprimento da lei que é taxativa.

48 – E aqui a lei não admite benevolência na sua aplicação, somente pelo fato de que o ex-Ministro das Comunicações tinha as melhores das intenções ao agir como agiu, posto que o caso não abraça o “arrependimento eficaz” (embora, perante as entidades divinas possa ter algum efeito), tendo-se em vista que o crime foi cometido contra o patrimônio público .

49 – Aliás, deverá ser levado também em consideração quando da aplicação e graduação da pena, o fato de que os có-réus são reincidentes, posto que não são jejunos em participar no polo passivo em ação de improbidade administrativa, tendo-se em vista que contra eles, já existem várias ações civis públicas c.c. ação de improbidade administrativa interpostas pelo Ministério Público Federal , em trâmites perante a 16ª Vara da Seção Judiciária de Brasília – DF, as quais se encontram em apenso ao processo nº 98.34.00.0103351-0.

50 – Assim de todo o exposto até o presente momento e confrontando-se o inteiro teor do depoimento prestado pelo ex-Ministro das Comunicações Luiz Carlos Mendonça de Barros ao Senado Federal, com os esclarecimentos prestados pelo BNDES aos concorrentes no processo de privatização do sistema de telecomunicações, veiculado pela Internet através do site do próprio órgão (www.bndes.gov.br), bem como à luz da legislação de regência, verifica-se que realmente ocorreram as irregularidades e ilegalidades outrora suscitadas, e que se tornaram públicas no último dia 9 de Novembro, podendo-se desde já afirmar ter a privatização sido realizada em total afronta aos princípios constitucionais e demais dispositivos legais.

Histórico dos Fatos para Contextualização das Ações Ilegais dos Representados em Relação às Impugnações Existentes à Privatização de todo o Sistema Telebrás

51- Pois bem. A impedir essa privatização no modo irregular em que foi processada, diversas medidas liminares foram concedidas em ações civis públicas ajuizadas pelo ora Requerente e pelo Ministério Público Federal.

52 – A primeira convocação de Assembléia Geral Extraordinária da Telebrás foi feita para o dia 24 de abril de 1998, mas não ocorreu por força de medida liminar concedida pelo MM. Juízo da 8ª Vara da Seção Judiciária do Distrito Federal, na ação civil pública – processo nº 98.34.00010351-0, onde foi alegado e reconhecido que o Edital de Primeira Convocação das Telecomunicações Brasileiras S/A – TELEBRÁS não observou formalidades essenciais previstas não só na Lei de Sociedades por Ações – Lei nº 6.404 de 15 de Dezembro de 1.976, como também na Lei Geral de Telecomunicações – Lei nº 9.472 de 16 de Julho de 1.997, caracterizando tal inobservância o desvio da finalidade.

Continua em Comunidade Jurídica.

Revista Consultor Jurídico, 10 de dezembro de 1998.

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3.3. A Entrada dos Bancos na Era da Internet

Além do e-cash, os pagamentos eletrônicos realizados via Internet compreendem os serviços de home-banking oferecidos pelos bancos a seus clientes. Os clientes podem utilizar-se da Internet para realizar operações bancárias tradicionais, tais como consultas de saldos e extratos, transferências de valores, aplicações, etc. Alguns bancos utilizam os recursos da Internet para facilitar a abertura de contas e cadernetas de poupança. Esta é uma tendência mundial, acompanhada de perto pelos bancos brasileiros. Aproveitar a estrutura oferecida pela Internet para a prestação de serviços nessa área é uma solução barata, rápida e que com certeza causa uma ótima impressão junto ao público.

Apesar de existirem bancos que oferecem serviços completos pela Internet, e que o custo de tais serviços correspondem, em média, a 10% (dez por cento) do custo dos serviços prestados pelas agências (da forma tradicional), a maioria dos bancos utiliza a Internet como meio de propaganda de seus serviços, uma espécie de folheto eletrônico.

No entanto, a quantidade de serviços que serão oferecidos pelos bancos para a realização via Internet certamente aumentará com o tempo. Já existem alguns bancos que oferecem operações mais complexas, tais como o uso do DOC, pagamento de títulos e contas, programação de débitos automáticos e transferência de valores entre bancos diferentes. Os bancos brasileiros estão sendo os pioneiros, por exemplo, ao oferecer estes serviços também a clientes pessoa jurídica, e preparam-se para, em breve, oferecer o acesso a todos os serviços no âmbito internacional, ou seja, o cliente acessará o sistema do banco de qualquer parte do mundo onde estiver.

O Banco do Brasil anunciou este mês o lançamento do Documento de Arrecadação Federal (DARF) eletrônico, o que permitirá o pagamento de alguns impostos via Internet. O acesso à rede poderá ser feito nos terminais de auto-atendimento do banco, ou por computadores particulares. A Instrução Normativa do Secretário da Receita Federal nº 58, de 27 de junho de 1997, definiu as características dessa nova modalidade de arrecadação, criada pela Portaria do Ministro de Estado da Fazenda nº 135, de 24 de junho de 1997.

Até mesmo as corretoras brasileiras estão ingressando na era da Internet, ao oferecer a prestação de serviços a possibilidade de efetuar negócios on-line.

A Sociedade Corretora Paulista (SOCOPA) lançou um endereço na Internet que permite ao investidor acompanhar em tempo real as cotações de cinqüenta ações negociadas pela Bolsa de Valores de São Paulo (BOVESPA), fazer aplicações e resgates em fundos de investimento e ainda ter acesso aos índices das bolsas mundiais, mercados de câmbio e mercadorias (Bolsa de Mercadorias & Futuros – BM&F) e taxas de juros.

O acesso aos serviços completos não estão disponíveis, no entanto, para o público em geral e para o pequeno investidor, que podem consultar algumas páginas oferecidas pela SOCOPA, mas não têm acesso às páginas interativas.

A evolução da prestação de serviços via Internet hoje em dia permite ainda que mesmo as empresas de pequeno e médio porte possam captar recursos no exterior. A redução do risco Brasil somada à queda dos juros internacionais e os elevados preços das ações em bolsas internacionais criaram um ambiente favorável para que as empresas brasileiras de menor porte passassem a representar uma boa alternativa de investimento para os investidores estrangeiros, pois suas ações ainda estão baratas e têm condições da alta valorização.

Um exemplo de inovação nos métodos de captação de recursos externos é o trabalho prestado pela Datamérica, empresa que representa no Brasil o Global Emerging Market (GEM), fundo de investimento com sede na Inglaterra. O procedimento para a captação de recursos consiste em encontrar uma empresa autorizada a captar recursos no exterior pela Security and Exchange Commission (SEC), responsável pelo cadastro e controle das operações de captação de recursos no mercado externo, que emite debêntures conversíveis em ações, dentro de um instrumento legal do mercado americano conhecido por Regulamento S. Os títulos são colocados junto aos investidores do GEM, que tem um patrimônio de nove bilhões de dólares norte-americanos. Dessa forma, a empresa brasileira não só capta recursos no exterior, como estabelece um vínculo para realizar novas emissões e captar investimento externo novamente.

4. Tributação de Bens e Serviços na Internet

Outro dos grandes impactos causados pelo uso da Internet como meio de concretização de negócios comerciais é a questão da incidência de tributos sobre estas relações. Os conceitos fundamentais do direito tributário, como a territorialidade, a competência, o estabelecimento comercial, dentre outros, adquirem contornos muito diferentes quando os negócios são realizados on-line, pois a Internet desconhece as fronteiras físicas, jurídicas ou legais, dificultando a instituição de tributos e a determinação de quem é competente para cobrá-los.


Quando a Internet é utilizada como um mera ferramenta de comunicação entre o comprador e o vendedor, por exemplo, as dificuldades de determinação dos tributos incidentes na operação são mais facilmente resolvidas. Assim, quando um brasileiro residente no Brasil faz uma reserva em um hotel na Inglaterra mediante o acesso ao site do hotel na Internet, os impostos incidentes nesta transação são os que normalmente incidiriam caso a reserva tivesse sido realizada por telefone, carta ou fax. O hotel pagará o equivalente ao imposto sobre a renda e imposto de prestação de serviços ao governo inglês, enquanto que o hóspede pagará o contribuição sobre movimentação financeira, correspondente à operação de retirada de dinheiro de sua conta bancária, ao governo brasileiro.

No entanto, como já foi discutido acima, as técnicas de negociação e os recursos oferecidos pela Internet estão se desenvolvendo rapidamente. A utilização do e-cash como meio de pagamento no comércio on-line, por exemplo, trará com certeza muitas dificuldades em se estabelecer o governo competente para instituir e cobrar impostos referentes à negociação (imposto de renda, sobre a prestação de serviços, sobre movimentação financeira, inclusive sobre a remessa de fundos ao exterior, dentre outros), além de ser, até o momento, muito difícil rastrear os sujeitos da operação e o local onde a mesma foi efetuada.

Um exemplo dessas inovações é a possibilidade do comprador adquirir um novo programa de software diretamente na Internet, simplesmente realizando um “download” , ou seja, gravando em seu computador o material que está circulando na rede. Apesar de ainda não ser uma forma muito difundida, até mesmo o pagamento pode ser realizado via Internet, utilizando-se o dinheiro eletrônico ou e-cash. Nesses casos, a instituição de impostos, tanto diretos quanto indiretos, é muito complicada, principalmente se for considerada a necessidade de evitar que os mesmos fatos geradores sejam tributados por dois ou mais países. As soluções para estes casos estão longe de serem atingidas, e as discussões a respeito ainda são, na maioria das vezes, meras especulações.

4.1. A Tributação dos Serviços Prestados pelos Provedores de Acesso no Brasil

Um problema mais concreto é a discussão acerca da tributação das atividades das empresas chamadas provedoras. A palavra provedor tem duplo significado no âmbito da Internet, podendo referir-se tanto àquele que alimenta a rede com informações (provedor de informações), como àquele que viabiliza a conexão de alguém à rede (provedor de acesso). De qualquer forma, a principal função dos provedores é a de efetuar a ligação entre rede e usuário, seja provendo informações, seja permitindo o acesso dos mesmos à Internet.

No Brasil, como em todo o mundo, discute-se muito a tributação dos serviços prestados pelos chamados provedores de acesso à rede. Faz-se necessário, portanto, procedermos à análise da natureza desses serviços, para somente então podermos definir quais os tributos incidentes sobre tal atividade. Com efeito, os provedores de acesso oferecem efetivamente acesso à Internet através de linha telefônica ou de outro meio adequado para a comunicação entre duas pessoas. Utilizando-se uma figura de linguagem, o provedor seria apenas uma chave que destranca a porta da Internet, que libera um espaço virtual proporcionado por ela.

De fato, os provedores de acesso não realizam o transporte de sinais de telecomunicações, mas tão-somente utilizam o sistema de transporte de sinais já existente. Ao estabelecer a conexão do usuário com a Internet, seja via Embratel ou por qualquer outro meio localizado no País ou no exterior, os provedores de acesso utilizam-se da rede pública de telecomunicações. Desse modo, a atividade dos provedores de acesso consiste unicamente na conexão do usuário à Internet através de linha telefônica ou de outro meio adequado para a comunicação entre duas pessoas. No caso da linha telefônica, cabe lembrar que o serviço de telefonia já é tributado pelo Imposto sobre Operações relativas à Circulação de Mercadorias e sobre Serviços de Transporte Interestadual e Intermunicipal e de Comunicação (ICMS).

Acrescente-se que, nos termos da Lei nº 9.295, de 19 de julho de 1996, artigo 10, a atividade dos provedores de acesso é caracterizada pelo acréscimo de recursos e um serviço de telecomunicações que lhes dá suporte, criando novas utilidades relacionadas ao acesso, armazenamento, movimentação e recuperação de informações, não caracterizando exploração de serviço de telecomunicações. Neste contexto, diante dos argumentos expostos, a atividade dos provedores da Internet deveria ser considerada como serviço de valor adicionado e não como serviço de comunicação, ficando, portanto, fora do campo de incidência do ICMS.


Em outros termos, as atividades dos provedores de acesso dependem intimamente do sistema de transporte de sinais já existente e explorado pelas empresas componentes do sistema de telefonia pública. Nesse sentido, os serviços por eles prestados de conexão dos usuários à Internet somente representaria um acréscimo de recursos ao serviço de telecomunicações pré-existente, não constituindo, sob essa ótica, um serviço de comunicação, apto a ensejar a incidência do ICMS.

É importante ressaltar que este não é o entendimento manifestado pelos fiscos estaduais. A Secretaria da Fazenda do Estado do Paraná, através da Consulta nº 168/96, entendeu que os serviços prestados pelos provedores de acesso constituem serviço de comunicação e, portanto, sujeitos à incidência do ICMS. Transcrevemos abaixo um trecho da referida Consulta:

“No caso sob análise, a comunicação é realizada por meio de ligação direta do interessado à rede Internet. Para tanto, necessita de toda a estrutura da Rede Pública de Telecomunicações no provimento dos Serviços de Conexão à Internet e, além dos serviços especializados dos intermediários que promovem o elo de ligação, entre informações disponibilizadas e os usuários. Este canal de ligação produz informação, no conceito de serviço, suporte fático da tributação”.

Outra questão que se apresenta é a de se considerar ou não os serviços de acesso do usuário à Internet como sujeito à incidência do Imposto Sobre Serviços de Qualquer Natureza (ISS), de competência dos Municípios. É de se ressaltar que, o pressuposto legal da incidência do ISS é a prestação, por empresa ou profissional autônomo, de serviço definido em lei complementar, não compreendido na competência tributária dos Estados (artigo 156, inciso II, da Constituição Federal).

Entretanto, a Lei Complementar nº 57, de 15 de dezembro de 1987 (Lei Complementar 57/87), ao definir os serviços sujeitos ao ISS, não inclui item específico a respeito da atividade exercida pelos provedores de acesso à Internet. Tendo em vista que a aludida lista de serviços é taxativa e considerando, ainda, que o serviço prestado pelos provedores de acesso não se encontra expressamente previsto na mesma, é de se concluir pela não incidência do ISS sobre o mesmo.

É evidente que essa não incidência do ISS somente perdurará enquanto o serviço não for incluído na lista de serviços constante da Lei Complementar nº 57/87, o que não deve tardar a acontecer, em razão da relevância que o negócio vem adquirindo.

Como se vê, não existe uma posição pacífica a respeito deste assunto, devido ao grau de complexidade da matéria e ao interesse do Fisco em regular e instituir tributos sobre estas relações, que têm crescido muito nos últimos tempos.

IV – Conclusão

Como se pode depreender do que foi discutido até agora, a Internet vem trazendo, e certamente trará a cada dia, novos desafios às relações humanas e à estrutura que até então procura regular estas relações.

Algumas das questões surgidas das relações estabelecidas via Internet podem ser regidas pelas leis nacionais, especialmente nos casos em que é possível determinar o território das partes ou onde as relações via rede surtiram efeitos.

Em outras situações, devido às peculiaridades da Internet, a eleição da lei aplicável ou do foro competente para decidir sobre questões surgidas nas relações via rede é mais complexa.

Nesses casos, as partes deverão optar por medidas alternativas para evitar as disputas em suas relações, ou para solucionar os conflitos existentes.

Assim, o uso da criptografia na transmissão de dados via rede constitui uma proteção contra muitos problemas, tais como o acesso indevido à informações confidenciais, ou a divulgação ou destruição dessas informações, dentre outros transtornos.

O uso de métodos de prevenção de conflitos e de proteção do material que circula na rede, conjugado com a aplicação das leis nacionais para a solução dos conflitos porventura surgidos no âmbito da Internet constitui na melhor forma de evitar ou solucionar disputas relativas às transações on-line.

A regulamentação da Internet, por meio de criação de normas e regras específicas para conduzir as relações nela operadas ou o conteúdo das informações que circulam na rede, não só desfiguraria o que a Internet tem de mais atraente, que é a agilidade e independência, como também mostrar-se-ia inútil, tendo em vista que as leis emanadas de um país não teriam reconhecimento em outras nações.

Sendo assim, as potencialidades da Internet devem ser exploradas e identificadas, antes que qualquer tentativa de regulamentação seja realizada. Somente após um melhor entendimento dessa nova ferramenta da comunicação humana será possível identificar as áreas de utilização da rede para as quais a criação e imposição de normas constituirão em um método eficaz e necessário para o maior aproveitamento da rede.

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