quinta-feira, 21 de agosto de 2008

CONCER desrespeita LEI Nº 9.065/98

MJ - DEPARTAMENTO DE POLÍCIA FEDERAL

SUPERINTENDÊNCIA REGIONAL NO ESTADO DO RIO DE JANEIRO

DELEGACIA DE POLÍCIA FEDERAL EM NOVA IGUAÇU


R E L A T Ó R I O


INQUÉRITO POLICIAL N.º: 630/2004-DPF.B/NIG/RJ.

INSTAURADO EM: 09 de novembro de 2004.

INCIDÊNCIA PENAL: Artigos 40 e 68 da Lei n° 9.605/98

INVESTIGADA: COMPANHIA DE CONCESSÃO RODOVIÁRIA JUIZ DE FORA - RIO


ILUSTRÍSSIMO SENHOR PROCURADOR,

O presente inquérito teve início com a Portaria n° 630/2004, de 09 de novembro de 2004, que, por sua vez, considerando o teor do Laudo Pericial n° 6769/04 do NUCRIM/SETEC/SR/DPF/RJ e demais documentos, resolveu apurar a eventual ocorrência de crime tipificado nos artigos 40 e 68, ambos da Lei n° 9.605/98 (fls. 02).

Às fls 07/11, Laudo Pericial n° 6.769/04 – SR/RJ o qual constatou, através do exame indireto, que os animais retratados, além de pertencerem a fauna silvestre da mata atlântica, constam na lista de animais protegidos e possivelmente morreram em decorrência de atropelamento.

Intimada a prestar esclarecimentos, compareceu à Delegacia de Polícia Federal em Nova Iguaçu a Srª. Márcia Fragoso Soares, então Coordenadora Ambiental da CONCER, a qual afirmou, sucintamente, que (i) “nunca tomou conhecimento, antes do inquérito, da ocorrência de atropelamento de animais”, (ii) “tem conhecimento que o local é o habitat de fauna silvestre protegida”, (iii) “que nos estudos realizados não foram constatados esse tipo de dano ambiental, causado por atropelamento de animais silvestres”, (iv) “admite que o atropelamento de animais silvestres é fato previsível, porém não nos índices”, (v) que “a rodovia já é dotada de dispositivos, para viabilizar a travessia dos animais silvestres entre a Reserva Biológica do Tinguá e a APA de Petrópolis” e (vi) que “as pertinentes placas de sinalização ainda não foram colocadas em razão de não haver um estudo que aponte para altos índices de atropelamento de animais silvestres”. (fls. 23/24).


Reinquirida, compareceu à Delegacia de Polícia Federal em Nova Iguaçu, a Srª Márcia Fragoso Soares, a qual afirmou, resumidamente, que (i) os “viadutos e bueiros são utilizados pelos animais para a travessia da rodovia”, (ii) “que vem sendo realizado estudo objetivando uma maior análise do problema”, (iii) “que acredita que ainda esse ano serão tomadas algumas providencias”, e (iv) “que vem sendo negociado um convênio com o IBAMA”. (fls. 40).

Às fls. 45/48, Proposta de Projeto, apresentado pela Concessionária, cujo objetivo, abreviadamente, consiste em identificar ações que reduziriam o número de atropelamento de animais silvestres na rodovia concedida.

Às fls.55 usque 110, Contrato de Concessão de Serviço Público precedida de obra pública entre a União, por intermédio do Departamento Nacional de Estradas de Rodagem – DNER, e a Companhia de Concessão Rodoviária Juiz de Fora – Rio (CONCER).

Às fls 111/144, Relatório Semestral n° 01 – março/96 à agosto/96.


Às fls 145/280, Relatório Semestral n° 02 – janeiro/97 à dezembro/00.


Às fls 281/337, Relatório Semestral n° 03 – janeiro/01 à julho/01.


Às fls 339/512, Relatório Semestral n° 04 – julho/01 à dezembro/01.


Às fls 513/617, Relatório Semestral n° 05 – janeiro/02 à julho/02.


Às fls 619/690, Relatório Semestral n° 06 – julho/02 à dezembro/02.


Às fls 691/742, Relatório Semestral n° 07 – janeiro/03 à junho/03.


Às fls 743/792, Relatório Semestral n° 08 – julho/03 à dezembro/03.


Às fls 793/849, Relatório Semestral n° 09 – janeiro/04 à junho/04.

Às fls 850/912, Relatório Semestral n° 10 – julho/04 à dezembro/04.


CONCLUSÃO:


Inicialmente, cumpre analisar o art. 68, da Lei n° 9.605/98, o qual dispõe, in verbis:


Art. 68 - Deixar, aquele que tiver o dever legal ou contratual de fazê-lo, de cumprir obrigação de relevante interesse ambiental:


Pena - detenção, de um a três anos, e multa.


Parágrafo único. Se o crime é culposo, a pena é de três meses a um ano, sem prejuízo da multa.

Cuida o presente tipo de norma penal em branco, uma vez que o comportamento proibido vem apenas enunciado, havendo necessidade de se recorrer à parte integradora para a completa subsunção da hipótese ao fato ocorrido.
Neste passo, o legislador estabeleceu como complemento da norma penal, obrigações descritas ou em outra norma legal, ou em contrato, hipótese que mais nos interessa.

Em análise do Contrato de Concessão de Serviço Público celebrado entre a União Federal e a CONCER, vislumbra-se, conforme seção XXX, item 176, a obrigação da Concessionária de enviar, ao DNER, semestralmente um relatório, com o intuito de satisfazer a política de proteção ambiental impingida. (fls. 89)

O dispositivo contratual referido, assim dispõe, a saber:


176. A CONCESSIONÁRIA enviará ao DNER, semestralmente, um relatório sobre:


a) os impactos ambientais provocados pela construção, conservação e exploração da RODOVIA;


b) as ações adotadas para mitigar ou compensar os efeitos dos impactos ambientais provocados;


c) os impactos ambientais previstos e (sic) a subseqüentes medidas de mitigação e compensação.


(os grifos são da transcrição)


Desta forma, sem muito esforço, extrai-se da cláusula em foco que a Concessionária, signatária do contrato, obrigou-se voluntariamente a enviar ao DNER estudos que, de acordo com o Princípio da Prevenção1, indicasse os impactos ambientais causados pela construção, conservação e exploração da rodovia concedida. Esses estudos, como natural, serviriam de base para adotar-se medidas ao menos mitigadoras ou compensadoras dos danos provocados.

Neste passo, é imperioso concluir que tal disposição contratual serve de complemento para o art. 68, da Lei n° 9.605/98 de forma a tornar o tipo penal aplicável. Portanto, nos termos da legislação ambiental, e tendo em
vista as obrigações contratuais assumidas pela Concessionária, esta incorrerá em crime contra a Administração Ambiental, caso deixe de enviar, dolosa (art. 68,
caput) ou culposamente (art. 68, parágrafo único), relatório que retrate os impactos ambientais provocados pela construção, conservação e exploração do objeto da concessão.
Da acurada análise dos relatórios enviados pela Concessionária (fls. 111/912) vislumbra-se que, apesar de se constatar a necessidade de prevenção de acidentes envolvendo a fauna, fato que se verificou mesmo durante as obras de implementação (vide, por exemplo, fls 286) absolutamente nada foi feito para reduzi-los. Omissão maior ainda se verifica pela completa falta de estudos sobre os danos causados à fauna durante a exploração da concessão.
Tais fatos são confirmados, posteriormente, pela Coordenadora Ambiental da CONCER, Drª Márcia Fragoso Borges, a qual, inquirida a depor, afirmou categoricamente, que sabe que o local explorado é
habitat de fauna silvestre protegida, e que mesmo assim, nenhum estudo foi realizado para atenuar tais danos.
Seria incoerente, ademais, admitir que o impacto ambiental causado pelo atropelamento da fauna silvestre protegida seja ínfimo, incapaz, desta forma, de causar qualquer dano ao meio ambiente. Em estudo feito pelo Instituto Terra Nova, anexado ao presente inquérito pela própria Concessionária, torna-se nítido o
relevante interesse ambiental que envolve a questão do atropelamento de animais da fauna silvestre. Confira-se excerto do Projeto (fls. 46), que aponta claramente a necessidade de se tomar medidas urgentemente, in verbis:
Por fim, também é importante ressaltar que a Lei n° 9.605/98 prevê, em seu art. 3°,
caput, a responsabilidade penal das pessoas jurídicas, confira-se:


Art. 3° - As pessoas jurídicas serão responsabilizadas administrativa, civil e penalmente conforme o disposto nessa Lei, nos casos em que a infração seja cometida por decisão de seu representante legal ou contratual, ou de seu órgão colegiado, no interesse ou benefício da sua entidade.


O dispositivo legal inovou o ordenamento jurídico, contrariando parêmia latina societas delinquere non potest1, ou seja, reconhecendo a possibilidade de se impor às pessoas jurídicas sanções penais.

Luiz Regis Prado, analisando o dispositivo citado, constatou que para a imputação de crime a pessoa jurídica é necessário “a) existência de infração penal; b) cometida por decisão do representante legal ou contratual da pessoa jurídica, ou de seu órgão colegiado; c) no interesse ou benefício da sua entidade”.2 Portanto, segundo o autor, preenchidos esses pressupostos, fica demonstrada a autoria do crime.

1 Muito embora alguns doutrinadores considerem tal dispositivo inconstitucional, o eg. Superior Tribunal de Justiça, em inúmeras oportunidades, considerou o dispositivo válido. Confira-se: Recurso Ordinário em Mandado de Segurança n° 16.696/PR, Rel. Min. Hamilton Carvalhido. DJ 13/03/2006; Recurso Especial n° 610.114/RN. Rel. Min. Gilson Dipp. DJ 19/12/2005.

2 PRADO, Luiz Regis. Direito Penal do Ambiente. São Paulo: Editora Revista dos Tribunais, 2005, p. 182.

Destarte, em primeiro lugar, resta configurada a infração penal ante a violação de dispositivo contratual de relevante interesse ambiental, como, aliás, foi exaustivamente demonstrado acima.
Também é evidente a conduta omissiva que deu ensejo ao descumprimento contratual. Mesmo reconhecendo a necessidade de preservação da fauna silvestre, seja durante a construção, conservação ou exploração da rodovia, a concessionária manteve-se inerte frente à morte de animais silvestres, vítimas de atropelamento.

Por fim, a omissão da concessionária em não empenhar recursos para estudos de preservação da fauna, repercute favoravelmente nos lucros da sociedade. Muito embora não tenha havido uma ação comissiva tendente a beneficiar a pessoa jurídica, sua reiterada omissão revela a despreocupação com a questão ambiental e com os animais mortos todos os dias, surgindo daí seu benefício, pois certamente é dispendioso evitar eficazmente a degradação da fauna local, através dos estudos de impacto ambiental exigidos pelo Art. 68 da Lei 9605/98.


Outrossim, com a não realização do estudo a CONCER se livrou da realização das medidas mitigadoras e/ou compensadoras pelo dano causado, as quais poderiam ser evidenciadas a partir do estudo que não foi realizado.

Da leitura da vasta documentação apresentada pela CONCER, não se verifica mais do que uma única frase, acerca do impacto ambiental provocado pelo mais do que previsível atropelamento de animais silvestres da fauna da mata atlântica.

A exploração da rodovia, portanto, contraria o papel social imposto pelo sistema normativo vigente.


DA RESPONSABILIDADE DAS PESSOAS FÍSICAS - REPRESENTANTES LEGAIS DA EMPRESA CONCESSIONÁRIA – CONCER.


No decorrer de todo o período de concessão, em atendimento ao disposto na Cláusula XXX, alínea “a” do contrato de concessão firmado (fl. 89), foram apresentados pela empresa vencedora da concessão, relatórios acerca dos possíveis impactos ambientais decorrentes do uso normal da rodovia.


O contrato foi assinado, pelos representantes da CONCER, na pessoa de seu Diretor Presidente e, bem assim, pelo Diretor de Operações.


Apesar de, como já dito anteriormente, terem sido previstos e apresentados relatórios nada de relevante foi apresentado, ou seja, nenhum estudo foi feito acerca da ocorrência de danos à fauna existente no local. Absolutamente nada foi feito pela empresa ou por seus representantes legais com o objetivo de minorar, ou pelo menos, avaliar a real dimensão dos danos causados.


Veja-se que o contrato, na cláusula retrocitada, fala claramente que:


  1. Os impactos ambientais provocados pela construção, conservação e exploração da rodovia;

  2. As ações adotadas para mitigar ou compensar os efeitos dos impactos ambientais provocados;

  1. Os impactos ambientais previstos e as subseqüentes medidas de mitigação e compensação.


Entretanto, analisando-se todos os relatórios apresentados, verifica-se que a única menção a danos à fauna é apenas às fls. 117, em relatório de obras informando sinteticamente que “os riscos adicionais de danos à vegetação e à fauna foram pequenos”, no decorrer das obras de manutenção e recuperação da rodovia.


Já os relatórios semestrais sobre proteção ambiental, encaminhados desde o início das operações da empresa concessionária, são todos praticamente idênticos, circunstância que prova não ter ocorrido durante todo esse período nenhum tipo de estudo sério sobre os danos ao meio ambiente, notadamente da fauna, mais especificamente sobre o grave e previsível problema do atropelamento de animais.


Todos os relatórios apresentados se limitam a sugerir a realização de um “Programa de Prevenção de Acidentes Envolvendo a Fauna” e só!!! Como confessado pela Gerente de meio ambiente da CONCER, nenhuma providência foi tomada, apesar da previsão contratual expressa, assinada pelos representantes legais da CONCER!!!


Nem mesmo placas solicitando cautela aos motoristas usuários da rodovia, em razão da travessia de animais silvestres, dignou-se a concessionária e seus representantes a providenciar.


Destarte, fica sobejamente demonstrada a responsabilidade criminal (Arts. 40 e 68 da Lei 9605/98) das pessoas físicas dirigentes, presentantes legais da empresa CONCER, nos cargos de Diretor Presidente e Diretor de

Operações, sendo essas pessoas, respectivamente: PEDRO ANTONIO JONSSON e RICARDO SALLES DE OLIVEIRA BARRA, conforme Ata de Reunião do Conselho de Administração de fls. 52.


Ante o exposto, tendo em vista que ficou totalmente comprovada a omissão de obrigação de relevante interesse ambiental pela Concessionária e seus representantes, obrigados, por força do Contrato de Concessão, a REALIZAR ESTUDOS sobre os impactos ambientais provocados pela exploração da rodovia, E TOMAR AS PROVIDÊNCIAS APTAS A MINORAR O DANO À FAUNA, resta comprovada a autoria e materialidade dos crimes contra o meio ambiente, previstos nos artigos 40 e 68, da Lei n° 9.605/98. Desta forma, findo a primeira fase da persecução penal, entendendo haver esgotado as diligências na esfera policial, submeto os presentes autos a V. Exª. para que, na qualidade de dominus litis, decida quais as providências cabíveis para a defesa dos bens jurídicos atingidos pela conduta criminosa sub examine.


É o relatório.


Nova Iguaçu/RJ, 27 de julho de 2006.


ALEXANDRE SILVA SARAIVA

Delegado de Polícia Federal



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