Jamille Carla Oliveira Araújo et al., Fiscal policies for economic sustainability in COVID-19: what do subnational governments in Brazil and Colombia reveal? (2023)

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Article by Jamille Carla Oliveira Araújo and four co-authors in Revista GeSec, v. 14, n. 4 (2023), comparing the fiscal measures that subnational governments in Brazil and Colombia adopted in 2020 and 2021 to keep their economies going during COVID-19. The authors reviewed laws and decrees on 92 government websites covering 27 Brazilian states and 33 Colombian departments. Brazilian states offered credit to vulnerable people, the self-employed and small businesses, plus tax exemptions, deferrals and installment plans. Colombian departments opened a credit line for tourism firms and granted tax exemptions. The authors conclude both countries needed tax reform.

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Revista GeSec
São Paulo, SP, Brasil

v. 14, n. 4, p. 6636-6662,

ISSN: 2178-9010 2023

DOI: http://doi.org/10.7769/gesec.v14i4.2070

Fiscal policies for economic sustainability in COVID-19: what do
subnational governments in Brazil and Colombia reveal?

Politicas fiscais para a sustentabilidade econômica na COVID-19: o que
revelam os governos subnacionais do Brasil e da Colômbia?

Jamille Carla Oliveira Araújo1,
Fernando Gentil de Souza2,
Eduardo Martínez Robles3
Laura Margarita Medina Celis4
Umbelina Cravo Teixeira Lagioia5

Abstract
This research aims to compare public governance response measures regarding the fiscal
policies adopted by subnational governments for economic sustainability in Brazil and
Colombia in the face of the Covid-19 crisis. Data collection was performed on 92 government
websites from 27 Brazilian states and 33 Colombian departments (subnational governments).
Through exploratory qualitative analysis, fiscal policies were studied between 2020 and 2021,
instituted by laws and decrees. Categorized into two strands: (i) laws supporting the

1
PhD student in Accounting Sciences, Federal University of Pernambuco (UFPE), Av. de economistas, s/n,
Cidade Universitária, Recife-PE, Brazil. E-mail: jamille.carla@ufpe.br
Orcid: https://orcid.org/0000-0002-2273-2347
2
PhD in Accounting Sciences, Universidad Zaragoza, Federal University of Pernambuco (UFPE), Av. de
economistas, s/n, Cidade Universitária, Recife - PE, Brazil.
E-mail: fernando.gentil@ufpe.br Orcid: https://orcid.org/0000-0003-3504-7872
3
PhD student in Accounting Sciences, University of Guadalajara, Jalisco, México,
E-mail: eduardo.martinez@cucea.udg.mx Orcid: https://orcid.org/0000-0002-3040-9128
4
PhD in Accounting and Financial Sciences in University of Camaguey, Cuba, Av. Periférico Norte, No. 799
Núcleo Los Belenes, Zapopan, Jal. E-mail: medinacelis@gmail.com
Orcid: https://orcid.org/0000-0002-3696-7243
5
PhD in Administration in Federal University of Pernambuco (UFPE), Av. de economistas, s/n, Cidade
Universitária, Recife - PE, Brazil. E-mail: umbelina.lagioia@ufpe.br
Orcid: https://orcid.org/0000-0001-8422-7808
Fiscal policies for economic sustainability in COVID-19: what do subnational governments in Brazil and 6637
Colombia reveal?

maintenance of economic sustainability and (ii) tax incentives. The main results indicated that
in a short time government needed to create methods and tools to adapt to the context of social
isolation and revealed fiscal policies to support small businesses. In Brazil, governments have
implemented actions: supporting vulnerable people, self-employed entrepreneurs, small
businesses, such as granting financial credit. In addition to tax incentives, there was
exemption, postponement and payment in installments. In Colombia, a line of credit was
granted to support the liquidity of all companies in the tourism sector, the incentives were
granted through tax exemptions, except for the tourism and air transport sectors. As much as
the incentives launched were aimed at minimizing the impacts of the pandemic and
maintaining part of the revenue collected by governments, for both countries the need for tax
reform was evident. It should be noted that Colombia started processing the tax reform project
in 2021 and on November 4, 2023, it was approved by both legislative houses, and is in the
final drafting process. This article theoretically contributes to the expansion of studies that
assess economic sustainability and public governance in developing countries in the face of
relevant economic crises.
Keywords: Tax Policies. Economic Sustainability. COVID-19. Public Governance.

Resumo
Esta pesquisa tem como objetivo comparar as medidas de resposta de governança pública
referentes as políticas fiscais adotadas pelos governos subnacionais para a sustentabilidade
econômica no Brasil e na Colômbia frente à crise da Covid-19. A coleta de dados foi realiza
em 92 websites governamentais de 27 de estados brasileiros e 33 de departamentos
colombianos (governos subnacionais). Por meio da análise qualitativa exploratória foram
estudadas as políticas fiscais, entre 2020 e 2021, instituídas por leis e decretos. Categorizados
em duas vertentes: (i) as leis de apoio à manutenção da sustentabilidade econômica e (ii) os
incentivos fiscais. Os principais resultados indicaram que em pouco tempo os governos
precisaram criar métodos e ferramentas para se adaptar ao contexto de isolamento social e
revelaram políticas fiscais de apoio aos pequenos negócios. No Brasil, os governos têm
implementado ações: apoiar pessoas vulneráveis, empreendedores autônomos, pequenos
negócios, como concessões de crédito financeiro. Além dos incentivos fiscais, houve isenção,
postergação e parcelamento de impostos. Na Colômbia, foi concedida uma linha de crédito
para apoiar a liquidez de todas as empresas do setor de turismo, os incentivos foram
concedidos por meio de isenções fiscais, exceto para os setores de turismo e transporte aéreo.
Por mais que os incentivos lançados visassem minimizar os impactos da pandemia e manter

Revista Gestão e Secretariado (GeSec), São Paulo, SP, v. 14, n. 4, 2023, p. 6636-6662.
Fiscal policies for economic sustainability in COVID-19: what do subnational governments in Brazil and 6638
Colombia reveal?

parte da receita arrecadada pelos governos, para ambos os países a necessidade de uma
reforma tributária ficou evidenciado. Cabendo destacar que a Colômbia iniciou a tramitação
do projeto de reforma tributária em 2021 e no dia 04 de novembro de 2023, foi aprovado pelas
duas casas legislativas, estando em processo de redação final. Esse artigo contribui
teoricamente para a expansão de estudos que avaliam a sustentabilidade econômica e a
governança pública em países em desenvolvimento diante crises econômicas relevantes.
Palavras-chave: Políticas Fiscais. Sustentabilidade Econômica. COVID 19. Governança
Pública.

Introduction

The Covid-19 pandemic has caused a serious public health crisis worldwide (World
Bank Group, 2021). In this context, to reduce the spread of the virus and avoid the collapse of
the health system, given the limited capacity to provide care, restrictive measures were
implemented throughout the country (International Labour Organization [ILO], 2020; Pan
American Health Organization [PAHO], 2020; Bergallo et al, 2021).
In Brazil, it had its first confirmed case on February 26, 2020. However, in compliance
with the initial measures of the United Nations (UN) on February 3, 2020, Brazil instituted
the first law, Law No. February 6, 2020, with social isolation and quarantine measures. The
following stand out as government measures in this regard: (i) Provisional Measure No. 936,
of April 1, 2020, which instituted the Emergency Program for the Maintenance of
Employment and Income and provides for complementary labor measures to face the state of
calamity public, later converted into Law No. 14,020, of July 6, 2020; (ii) Constitutional
Amendment no. 106, of May 7, 2020, which institutes an extraordinary fiscal, financial and
contracting regime to face a national public calamity resulting from a pandemic (United
Nations Organization (UN), 2020; Presidência da República do Brasil, 2020abcd).
In Colombia, it had the first notified case of the new coronavirus on March 2 and, on
July 25, it had reported 240,745 cases and 8,269 deaths (Instituto Nacional de Salud, 2020).
In Colombia, the following stand out: (i) Decree No. 417 of March 17, 2020, which institutes
the State of Economic, Social and Ecological Emergency throughout the entire Colombian
national territory. (ii) Decree No. 637 of May 6, 2020, institutes the generation of agile
mechanisms that allow efficiently meeting the needs of the population, affected by the

economic, social and ecological emergency resulting from the COVID-19 Pandemic, go to
the procedure of direct contracting (Gobierno de Colombia, 2020ab).
However, these measures require regulation to be effective in practice (Tavares,
Silveira and Sousa, 2020). These two South American countries are studied in this article
because they were the first to implement decrees, laws, financial and non-financial measures
in Latin America, assuming a fundamental role in combating the pandemic, not only to face
adversities, but to meet the demands of society (Fairlie, 2020; Kijkasiwat et al., 2021; Yan et
al., 2021; Grossi & Argento, 2022; Araújo, Souza & Gomes, 2023). This dichotomy is marked,
on the one hand, by the effectiveness of the confinement measures enacted by the government,
the strengthening of the health and self-care system exercised by citizens (Leguizamón, López
& Beltrán, 2021).
On the other hand, the economic challenge depends on the government's effectiveness
in maintaining the economy, ensuring the sustainability of the most vulnerable (Bergallo,
Mangini, Magnelli & Bercovich, 2021, Leguizamón, López & Beltrán, 2021, Gomes, 2021).
In view of this scenario, the measures that guarantee economic sustainability through
tax incentives have made it possible to obtain financial resources from central, subnational
and municipal governments (Gomes, 2021; Guzmán, Araújo, & Celis, 2023). Other studies
reinforce that these measures are means of facing adversity, meeting the demands of society
and future challenges when dealing with mechanisms for composing strategic decision-
making plans (Fairlie, 2020; Vivas & Villas, 2020; Kijkasiwat et al. , 2021; Yan et al., 2021;
Araújo, Souza & Gomes, 2023).
This work aims to compare public governance response measures regarding the fiscal
policies adopted by subnational governments for economic sustainability in Brazil and
Colombia in the face of the Covid-19 crisis. Based on some studies that discussed the various
government initiatives in: health, public finance, economy and social protection (Eigenstuhler
et al., 2021; Laing, 2020; Rastev, et al. 2020; Tavares, Silveira & Paes- Sousa, 2020; Bastida,
Bracci & Hoque, 2021; Cohen, Rossi, Caperchione & Brusca, 2021), this research focused on
initiatives, classified into two strands: (i) laws supporting the maintenance of economic
sustainability and (ii) the tax breaks. The research question must be answered: What public
governance response measures regarding fiscal policies, guided by laws and decrees, have
been adopted by subnational governments to guarantee economic sustainability in Brazil and
Colombia in the face of the Covid-19 crisis?
Data were collected based on open data web pages in Brazil and Colombia and
compared with official information published in laws and decrees regarding support for

maintaining sustainability or economic activity and tax incentives. Data were analyzed using
the Analyzes Multidimensionally software from Texts et de Questionnaires 2.0. (Iramuteq
2.0.). The search the developed isa contributes in several aspects to the academic discussion,
highlighting the measures of public governance responses attributed to fiscal policies and
economic sustainability in the two countries that aimed to preserve the balance, involving both
the tax reform of the Value Added Tax (VAT) in Colombia and exemption from various types
of taxes in Brazil.
The article is organized into 5 sections. After the introduction, the theoretical
framework is described in section 2 presents the literature review on public policies and fiscal
policies, also addressing economic sustainability and COVID-19 in both countries, and
section 3 brings the description of the methodology, addressing the research method used and
in section 4, develops the analysis and discussion of the research results. Finally, conclusions,
limitations and future research.

Literature Review

2.1 Public Policies and Tax Policies

According to the analytical assumption worked by Souza (2006) at first, public policies
are structured through actions developed by the government to guarantee rights to the
population. In this sense, an analysis of the empirical production of the relationships
established by governments and the establishment of dialogues between social scientists,
interest groups and government is necessary for its understanding.
Complementing this, Simon (1957) argues that his understanding of rationality and
public decision-makers is always limited by problems such as incomplete or imperfect
information, in addition to response time for decision-making and self-interest of decision-
makers. In congruence with this, all definitions emphasize the role of public policy in solving
problems and in this perspective understand how and why governments choose certain actions.
As a counterpoint to these arguments, other public policy authors ignore the essence
of public policy, that is, the clash around ideas and interests, which will produce specific
effects (Lyn, 1980; Dye, 1984) and are directed towards a vision of that the whole is more
significant in the face of the sum of the parts, in the way that individuals, institutions,
interactions, ideology and interests count, even if there are differences ( Souza, 2006;
Carreirão, 2015).

In this way, the rulers implemented measures, through laws, decrees, resolutions and
ordinances, such as the implementation of the state of public calamity and quarantine, which
direct people to maintain social isolation (Conti, 2020).
In the context of developing countries, these fiscal policies are instituted through
government action programs, in this sense, they play a correlated role, and it is through the
State that it is possible to raise and maintain public revenues to develop its inherent functions,
as well as organize and execute (Araújo, Souza, Gonçalves & Silva, 2020, Medeiros &
Rossignoli, 2017; Araújo, Souza & Gomes, 2023).
Therefore, the use of tax incentives has been adopted as one of the most common tax
policies in a lawful way to grant incentives through the reduction or elimination of taxes,
generating social gain (Rezende, Dalmacio & Rathke, 2018). These make it possible to reduce
the tax burden, which during the pandemic were widely used for economic maintenance in
the three spheres of government, by encouraging the economy of a given region (Araújo,
Souza, Gonçalves & Silva, 2020, Oliveira et. al., 2014).
Such incentives during the duration of the pandemic were instituted in Brazil and
Colombia through: extensions, installments and exemptions (Presidência da República da
Brasil, 2020d; Gobierno Colombia, 2020b). These incentives could be identified by numerous
decrees, laws, measures, which were presented to the citizen through digital channels and in
government applications, in the study countries, which demanded daily information with:
bulletin, decrees, contingency plans, booklets for small businesses and information about the
recovery plan.
This more factual information from the public administration on COVID19 in digital
media, provided an opportunity to improve information systems, such as presenting measures
to support citizens during the pandemic (Gomes, 2021). Therefore, this information reinforces
the contribution of Public Governance as an instrument to guarantee information to citizens
about COVID-19 (Gonçalves, Souza & Araújo, 2020).
In Brazil and Colombia, applications were developed to bring official disclosure of
COVID-19 data, the “Coronavirus – SUS”21, CoronApp, respectively, interestingly, it came
as an incentive measure by the Ministry of Health of each country. Both raising public
awareness and working as a preventive health measure based on information related to the
virus.
However, as much as digital services and digital information are a milestone of
opportunity and changes in public administration. It should be noted that this rush to develop
online services, platforms and means of communication brings defects and shortcomings in

their execution, since they may not be being developed with the same excellence as if they
had occurred in a more stable moment ( Garcia, 2007; Carvalho & Rodrigues, 2020; Gomes,
2021).
In this sense, the contingency theory supports the discussion, considering that there
were numerous factors that made changes in the dynamics of countries in public
administration possible. These changes proposed by the internal and external environment and
classify these responses as appropriate or dysfunctional. Therefore, when associating these
theory actions, it is highlighted that there are few conclusions that can be drawn about public
policies, fiscal policies, public governance, electronic government and governance and their
effects on the impacts of taxes, in particular and government subsidies ( tax breaks).
At this point, there is still a lot to advance towards a consolidation of electronic
governance assumptions that relate fiscal policies and savings generated by incentive actions
granted, still, in the COVID19 pandemic, due to the idiosyncratic conditions present in both
study countries.
Moreover, the proposal of economic sustainability and the enforcement of fiscal rules
imply, at least in emerging countries, maintaining high primary surpluses and containing the
discretionary action of fiscal policy. However, in the pandemic situation, the tax incentives
assigned are trying to guarantee the economic maintenance of the government.

2.2 Economic Sustainability and COVID-19

The paths of economic sustainability become a social challenge and a research topic
in the Covid-19 pandemic, which refers to the temporal dimension, economic actions, and
decisions that have been taken. Economically, the pandemic has caused and continues to cause
a global slowdown, creates an impact on future decisions, and creates long-term costs in
countries around the world (World Bank Groups, 2020). In the face of this problem, economic
and social needs arise, technological dependence on developing countries and developed
countries; the increase of people displaced by environmental situations; the increase in child
mortality; the worsening of formal education and the increase in poverty (García-Contreras,
Valle-Cruz & Canales García, 2021).
Based on the above, current challenges are exacerbated and compromised not only to
a governance scheme but "regulatory measures need to implement guidelines with less
comprehensive levels by the central government" (Alcantar et al, 2021). In this context, an
assessment of the economic dimension aims to reduce the negative externalities of production,

seeking an economy concerned with generating a better quality of life for people. Many of
these economic sustainability problems are increased by situations of uncertainty (Platje,
Harvey, & Rayman-Bacchus, 2020; Van Dam & Webbink, 2020), as well as issues related to
ensuring public revenue and promoting economic development sustainability.
In this regard, it should be reported that crises end up promoting adjustments in
economic activities. Concerning the situation caused by Covid-19 to save lives, jobs, and the
survival of companies, the adjustments must have objectives that do not prioritize tax savings,
and that developing a huge expenditure will mean a greater public deficit that will always be
a better option than increasing the death toll (Bresser-Pereira, 2020). For the study of Getúlio
Vargas Foundation [FGV] (2020), the pandemic scenario must be seen as complex and
dynamic; in turn, it must confirm that it will require the government to private initiative and
aligned population actions to combat covid-19 without ruling out insecurity in its various
dimensions (Barbosa, 2020).
Both Brazil and Colombia have instituted several measures intending to improve the
implementation of structural public policies, and the creation of public policy’s instruments
that reach the entity's economy directly to increase liquidity and reduce the cost of financing,
thus ensuring the achievement of the objectives of maintaining the stability of growth and
employment (Brazilian Institute of Economics [IBRE], 2020; Álvarez et al, 2020; Pinzón,
2020). In these areas, the display of threats and opportunities are examples of what the
pandemic creates with policies. The public, taxation, governance, and sustainability can
provide an initial overview, allowing for a more realistic assessment of what consequences
can be expected.
This study aims to identify the equivalent policies established by countries with
comparable relevant dimensions in Brazil and Colombia, evaluating measures: fiscal policies
and economic sustainability (assessed for the social protection of vulnerable and labor issues).
For Colombia, the approach to economic sustainability is supported by government
documents that have standardized economic policy measures. It considers in its structure all
actions taken by the government regulated by devices and procedures for the implementation
of measures by central governments or in partnerships with federal units (Mejía, 2020;
CEPAL, 2020).
In the case of Brazil, the economic responses to the pandemic were at the federal level
and have been permeated by conflicts between the technical and political bodies (Tavares et
al, 2020). Thus, the characteristic of the pandemic and public health emergency needed
several measures not only on health but also political and economic. A priori was authorized

to identify the capacities of the State, which includes institutional arrangements of rum and its
government, which was decisive to face the challenges (Gomes, 2021)
This study seeks to compare equivalent policies instituted by countries with
comparable relevant dimensions in Brazil and Colombia, evaluating measures: fiscal policies
and economic sustainability (assessed by social protection of vulnerable people and labor
issues). Sufficient and given the context of the insertion of restrictive measures and, therefore,
positively influencing the management of the crisis.

Methodology

The methodology proposed in this study was based on exploratory qualitative research
modeling, using secondary sources, with data from 92 web pages of state governments in
Brazil and Colombia, from 04/29/2020 to 11/30/2021. The countries were chosen according
to socioeconomic and demographic criteria related to the known risk factors associated with
the pandemic, and because they were the first countries to institute emergency measures.
After searching the websites, a total of 294 documents were found (220 from Brazil
and 74 from Colombia), which contained information on tax policies, tax incentives, laws,
decrees, emergency measures and service applications (app).
The information in the documents was related to the four pillars created by the
International Labor Organization (ILO) in line with the United Nations (UN), Organization
for Economic Cooperation and Development (OECD) and the World Bank. Table 1 presents
the four pillars for combating the effects of COVID-19.

Pillars Guidelines
Pillar I - Stimulate the Tax policy actions
economy and employment Accommodative monetary policy (with low interest rates)
Financial support and loans to essential and specific sectors
Pillar II - Support for Social and vulnerable protection
companies, employment Promotion of tax relief (taxes, fees, improvement contributions, and special contributions) for
and income companies
Job protection measures and formation of new enterprises
Health and safety measures
Pillar III - Protect Organizational arrangement in the work process and in the guarantee of teaching (telework and
workers in the workplace distance learning
Expansion of paid leave
Pillar IV- Betting on social Strengthening the capacity of local governments to combat COVID-19
dialogue for solutions Structuring of social and collective dialogue and work processes
Strengthen resilience among employees and employers
Table 1 - The four pillars for combating COVID-19
Source: Araújo, Souza & Gomes, 2021 p-12
Note. From A policy framework to address the economic and social impact of the COVID-19 crisis, de
International Labour Organization (ILO), 2020, pp.5-18 (https://www.ilo.org/wcmsp5/groups/public/---europe/-
--ro-geneva/---ilo-lisbon/documents/publication/wcms_766107.pdf).

The analysis considered 26 from Brazilian states and 1 federal district and 32 from
Colombian departments and 1 district department. These states and department in the analysis
were considered as subnational governments, a term used in International Relations to qualify
states, provinces, and department, being used to qualify the state actors that are closest to meet
the needs and demands of the population, which guarantee services and the well-being of
citizens (Salomón & Nunes, 2007; Machado, Ortiz, Silva & Bellix, 2020; Bello-Gomez &
Sanabria-Pulido, 2021; Simonassi, Gondim Filho & Arraes, 2022; Lucas et al., 2023 ).
Of the 294 documents analyzed, 134 documents with repeated information were
excluded, and 160 documents were analyzed (128 from Brazil and 32 from Colombia)
classified in pillars 1 and 2 of table 1 and categorized in the study by: (i) maintenance support
laws economic sustainability and (ii) tax incentives. After defining these categories, the fiscal
policies and sustainability actions adopted in both countries during COVID-19 will first be
presented.
The use of the criterion of comparison between countries is possible because both have
code law as their institutional structure (Ball, Kothari, & Robin, 2000) and this helps to
understand how (digital) communication and economic conditions change the accounting
standards adopted in the country. code law countries. These proxies interact and influence the
behavior of public administration in the production of information of greater or lesser quality
in developing economies with a relevant history of economic crises (Ebaid, 2016, Miranda-
Lopez, & Valdovinos-Hernandez, 2019).
In addition, country choice characteristics and conceptual approaches of subnational
governments support the methodology for comparing public governance response measures
regarding fiscal policies adopted by subnational governments for economic sustainability.
Aspects addressed in other scientific studies supporting these analyzes developed (Tavares,
Silveira & Paes-Sousa, 2020; Vivas & Villar, 2020; Bhusal, 2020; Fairlie2020; Ansell, &
Torfing, 2021; Grossi & Argento, 2022; Araújo, Souza & Gomes, 2023).
Next, the information was analyzed in the Iramuteq software, used in this research
because it allows a more robust evaluation of textual data, separated from textual transcripts
into categories, which allowed comparisons to be made between the countries studied
(Camargo & Justo, 2013; Salviati , 2017). Three forms of analysis were used: Factorial
Correspondence Analysis (CFA), dendrogram presentation, Reinert's method and word cloud.
The CFA allows a chi-frame correlation analysis of each word, frequency and categorization
by classes, graphically represented by a Cartesian plane. The dendrogram used to graphically
represent textual stratification and highlight word size and class. The word cloud presents the

most frequent words, highlighting by size, the larger the words, the greater their relevance in
the study (Halliday & Matthiessen, 2004; Camargo & Justo, 2013; Ang et. al, 2016; Salviatti,
2017; Souza, de Souza, & Ramos, 2021).
All the results obtained from the research were discussed among the authors,
respecting the criterion of analysis of the verbal material. In addition, the study identifies
limitations for not presenting lessons, economic issues, party politics and some results of
initiatives, considering that the pandemic was ongoing during the year 2021. In view of the
results and discussions to be presented, this work contributes theoretically for the expansion
of studies that assess economic sustainability and public governance in developing countries
in the face of relevant economic crises.

Analyzes and Discussions

Facing a crisis that requires unconventional responses. In both countries, they are
concerned with the level effect: the size of the economies and their capacities to recover
growth after the shock, consequently the distributional impact (Heras, 2020; Moscuzza, 2020;
Ortega, 2020).
In this sense, the governments of Brazil and Colombia had to implement quick and
adequate measures to the particularities of each country. Adopting for this purpose activities
that maintain and create mechanisms for adapting productive transactions established by
digital platforms, for example, such as requests for installment payments, exemptions,
economic support and financing, were included as changes that occurred and were analyzed
in Figure 1.

Figure 1: Dendrogram of words from the study compared between Brazil and Colombia
Source: Survey data, Iramuteq, 2021.

From the collected information, based on the corpus, present in Figure 1, 2 initial text
units were constituted (Brazil and Colombia), divided into 07 text segments (STs). Of these
121, 107 STs were cataloged, with 4255 occurrences, average of forms per segment
35,115512, with active forms of frequency >= 3:213, with 4 clusters, separated for each
country in (i) laws supporting the maintenance of economic sustainability and (ii) tax
incentives. 88.43% were presented, of use of Elementary Context Unit - ECU.
According to Carmargo and Justo (2013), so that the data model loaded in Iramuteq
has confirmation that its information is valid and guarantees its reliability, the hierarchical
classification of descendants (CHD) of being greater than or equal to 70% is the maximum
index of the UCE, considering the data acceptable for data processing.
Following the analysis of the categories by country according to the textual domains,
it is possible to group the keywords highlighted in 4 clusters: (i) laws supporting the
maintenance of economic sustainability clusters 2 covering 21.5% in Colombia (23 of 107st)
consisting of words and stems from intervals between X² = 4.01 ( websites) and X² = 13.63 (
economic activity), clusters 4 covering in Brazil 42.24% (31 of 107 st) consisting of words
and stems from intervals between X²= 4.21 X² = 16.88; and (ii) tax incentives. clusters 1
covering in Brazil 32.71% (35 of 107 st), generated by words with radicals and intervals
between X²= 4.58 (web pages) and X²= 17.42 (taxes) clusters 3 covering 16.82% ( 18 of 107

st) generated by words with radicals and ranges between X²= 3.87 (web pages) and X²=12.05
(taxes).
The use of the dendrogram for these analyzes allows evaluating the construction of
words with radicals and intervals within the classes, allowing to identify the antecedents of
the classes, independent and dependent variables that are bases for the results of statistical
tests (Ha et. al., 2020).
These results reflect the additional pressure on public finances, caused by the impact
of the global crisis, which was boosted by factors such as the type of fiscal policy promoted
by national governments and others (Barbera, Guarani, & Steccolini, 2020, Batista, & da Cruz,
2019). Therefore, having financial and budgetary support from other government spheres
becomes necessary to reduce economic shocks (Araújo, Queiroz, Paulo, & Nobre, 2020).
Contrary to this, Tavares, Silveira and Sousa, (2020), argue that the first step for Brazil
to reverse the socioeconomic situation, through regulations that are effective in practice,
associated with social protection measures.
Unlike the Colombian government, which on March 27, 2020, issued an economic
incentive measure for rural workers and producers and to guarantee the supply of agricultural
products and food security (Gobierrno de Colombia, 2020b).
On March 25, 2020, resources were allocated for social security for the elderly. This
same resource also supported the value chain and informal workers not included in other
government programs (Gobierrno de Colombia, 2020c). Five days later, the government
announced credits of US$ 6.9 billion with benefits granted by the financial system, targeted
at at least 240,000 indebted people with so-called relief plans.
In Colombia there are taxes at national and regional level. National taxes (income,
VAT, consumption) apply to all natural or legal persons residing in the country and regional
taxes (ICA, real estate) are determined by each department or municipality according to the
parameters defined by law (Gobierno de Colombia, 2020c; Villarruel Fuentes, 2021).
In Brazil, until August 2020, the Ministry of Economy already registered a primary
result accumulated in 12 months, a deficit of R$ 647.8 billion, equivalent to 8.96% of the
Gross Domestic Product (GDP), pointed out by Prism Fiscal. Prisma Fiscal is a system for
collecting market expectations developed by the Secretariat for Economic Policy that
evaluates the evolution of Brazilian fiscal variables (Ministério da Fazenda do Brasil , 2020).
In Colombia, one of the fiscal measures that should be highlighted is the solidarity tax
for COVID-19, specifically destined for social investment in the vulnerable middle class and
informal workers, this tax being obligatorily paid by public servants according to their income.

Those taxed as follows: those earning between US$10 million and US$12.5 million must
contribute 15% of their salary, while employees with salaries between US$12.5 million and
US$15 million must contribute 16% . Meanwhile, Salaries in the range of US$15 million to
US$20 million are given a 17% rate and those above R$20 million, 20%. This withholding
also applies to contractors and pensioners with grants of $10 million (Parlamento Andino,
2021)
In this context, several studies have shown a concern about how to deal with the
COVID-19 pandemic, trying to understand and measure what will be most affected in terms
of business sustainability specifically, as well as what measures could be implemented by the
companies themselves (Hassan, Hollander, , Van Lent, Schwedeler, & Tahoun, 2020,
Fernandes, 2020).
When comparing the two countries themselves, the results indicate that Brazil had
greater requirements to guarantee revenues and maintain companies. In Colombia, it
concentrated its actions on the vulnerable, on programs to support the population and
companies. Remembering that during the pandemic, Colombia is in the process of approving
a tax reform to maintain the country's economy. Subsequently, an evaluation was carried out
by combinatorial factor analysis in figure 2 (Szüster et. al., 2015).

Figure 2: Factor Correspondence Analysis (CFA)
Source: Research Data, Iramuteq, 2021.

Factorial Correspondence Analysis (CFA) allows the visualization of the most
important relationships in a large set of variables among themselves. Being carried out from
the texts between the words, considering the frequency of incidence of the words and the class,
represented in a Cartesian plane. It is observed that the words of all classes are presented in a

centralized segment that expands to peripheral points. However, few words surpass the other
quadrants, showing a significant separation of classes. The figure on the right side highlights
the positions of the groups.
Figure 2 summarizes the frequency and correlation values in the quadrants of each
word, which were extracted in this article from the Iramuteq software. “This analysis allows
identifying the specificity of the data, which are exposed in groups of selected variables”
(Carmargo & Justo, 2013). In the CFA, the evaluation was performed by quadrants, to group
the words and corresponding terms, which can confirm the dichotomous analysis performed.
Economic sustainability of Quadrant 1 Colombia (Clusters2), Economic sustainability of
Quadrant 2 Brazil (Group 4), Fiscal policies of Quadrant 3 Colombia (Group3) and Fiscal
policies of Quadrant 4 Brazil (Group1).
Quadrant 1 with class 2 and quadrant 2 with class 4 evoke more positive words in the
Cartesian plane and with greater meaning. When comparing these two quadrants with each
other, it is observed that Brazil presents more measures of economic sustainability if they
stand out more and positively than the adopted fiscal policies. Quadrant 3 with class 3
presented negative evocations of words in the Cartesian plane, and with non-significant values
for fiscal policies in Colombia, demonstrating that there were many measures adopted in the
country. Quadrant 4 with class 1 presents evocations focused on economic sustainability that
demonstrate that they were significant and that they stood out more than fiscal policy measures
in Colombia.
According to Rendon-Pareja (2021), the tax reform for Colombia, resulting from Law
1,819 of 2016, brought significant changes in the tax model, this reform was the engine of the
country's economic growth, growth that the government sought through comparison and
Colombia's inclusion in the Organization for Economic Cooperation and Development
[OECD]. However, even though the Colombian government has only adopted it ad hoc,
transitory, and aiming only to deal with its immediate effects, a new tax reform is necessary
to be able to rescue the government from the socioeconomic crisis and the recurrent natural
disasters, even if not periodic.
Comparing the two quadrants, it is estimated that measures of economic sustainability
in Brazil stood out more and positively among the other elements studied. The results above
and positively in the Cartesian plane, demonstrate that the measures adopted are greater in
Brazil than in Colombia. From the keywords of our method, it was possible to perform a
lexical analysis that allows grouping words and graphically organizing them according to their

frequency, where the size of the words indicates the degree of importance in the textual corpus
Figure 3.

Figure 3: Word Cloud
Source: Research Data, Iramuteq, 2021.

The evidence found in Figure 3, the word cloud, on fiscal policy and economic
sustainability. The most used words in the research refer to the most used names, such as
"tax", "payment", "government", "national", "measure", "credit", "service" and "company".
This information highlights the highlights of the analyzed measures. From the results
confirmed by the analysis, other topics related to communication and transparency may arise,
not addressed in this study, identified through the application (App) by both countries.
The similarity analysis allows understanding the structure of the construction of the
text and themes of relative importance, it shows words that are close and distant, one from the
other, or some, form a word tree with its branches from the relationships stored between them.
Crespo, Simões & Dumitrescu (2020) will use a similarity analysis to identify the factors
associated with trade agreement between countries, given the growing openness of economies,
with a sharp increase in two levels of economic globalization, countries (and companies)
facing to others. To ensure compliance with international markets, verify that the lexigraphic
analysis on the trees is related to the socio-economic dimension, fiscal policy conditions and
economic growth.
After the analysis, a similarity tree, which synthesizes the highlighted classes, is
presented in Figure 4, allowing both the identification of occurrences and the analysis of the
linkage of words in the textual corpus. Each branch present in the similarity tree represents

the main correlations between the words and the link between the terms present in the texts of
the corpus, the search word practically connects with all the subgroups.

Figure 4: Similar tree of fiscal policy and economic sustainability categories
Source: Research Data, Iramuteq, 2021.

This analysis listed the words “tax”, “government”, “service” and “payment” as a
central theme, in green. The axis of the central branch 1 indicates that the form "tax" was the
most used field in the researched approaches. From this central connection derive the other
joints, identified in Figure 4 by the most robust branches of the tree.
Branch 4 presents the states and their categories: small, solidary, work, financial, credit
and business. Branch 6, evidence of conceptual approaches, directs attention to the citizen in
the fight against its economic effects. Residential branch 5 focuses on activities for
commercial developments. Branch 1 (left) ratifies the emergency actions in the face of the
Covid-19 pandemic, being the starting point for government actions, services, fiscal policies
and economic sustainability, which have conceptual approximations, of the Colombian
government, its federal actions aimed at meeting the more vulnerable population.
Power 3, shows conceptual approaches, of the Colombian government, its federal
actions aimed at serving the most vulnerable population. “In the study, public policies are
characterized by multidisciplinary union actions applied in different sectors of society, such

as education, health, work, security, sports and leisure” (Carreirão, 2015, Capella, & Brasil,
2015, Fernandes, 2007) . For countries, one of the biggest challenges was the resumption of
services with the easing of social isolation, as well as the adequacy of the measures established
by the World Health Organization (WHO). This organization defines the technical criteria to
be adopted to prevent contamination by coronavirus in public environments.

Final Considerations

The objective of this work was to compare public governance response measures
regarding the fiscal policies adopted by subnational governments for economic sustainability
in Brazil and Colombia in the face of the Covid-19 crisis. The expansion of the Covid-19 virus
generated supply shocks by interrupting the flow of global trade and value chains, as well as
demand shocks associated with the interruption of global economic activity due to the
containment measures adopted in each country. In a short period, organizations had to create
methods and tools to adapt to the new context. If local governments did not provide incentives,
many businesses would collapse and unemployment would rise rapidly.
Both countries provide information through the public administration recommended
by law, the population responds to current shocks and reduces conflicts between rulers and
ruled. All this helped to give the Brazilian and Colombian governments time to institute
measures not only in the face of the health problem, but also to prepare for new strategies and
decisions to be taken.
After analyzing all the content of laws, decrees and emergency measures in the states
of Brazil and Colombia, it is possible to conclude that the measures taken by the countries
were necessary so that the economic shocks were not worse than those experienced. Therefore,
the emergency measures allowed Colombia to realize the need for a tax reform, in this case
the third tax reform, which was approved by both legislative houses in November 2023. In
Brazil, the implementation of the tax reform is still under discussion. However, it should be
noted that Brazil has a strong social protection infrastructure and that Colombia is still
building.
With the textual content analysis, it was also revealed that the positive and negative
relationships of the adopted measures (quadrant analysis) highlight the economic
sustainability measures of the state governments more than the fiscal policies. However, it
was unable to reveal society's reaction to these measures, which is the limitation of the

research and possibly the subject of future research. The laws highlighted tax incentives,
exemption, postponement and payment in installments.
It is concluded that, even though there are differences between countries, there is still
much to be learned in dealing with the tax issue, considering that the tax issue as a collection
system and spending on public goods and services are part of the same social pact. In this way,
economic sustainability depends on government actions able to subsidize social protection,
making the ideas of collection in the end sense be converted into means by which the State
can perform its role as an investor in the protection of the vulnerable, provision of services
the population, stabilizer of the economy and entrepreneur.
The results show the complexity involved and the need for careful analysis in relation
to tax policy, as it spreads throughout the economic system, affecting a wide range of other
economic variables, such as employment levels, price levels, consumption, added value,
among others. others. In view of this, the results indicate the need to combine several measures
to obtain results in terms of growth and income distribution.
This work theoretically contributes to the expansion of studies that assess economic
sustainability and public governance in developing countries in the face of relevant economic
crises.
This study was limited to the description of fiscal policies and the discussion of
economic sustainability measures of subnational governments, highlighting the contingencies
that occurred and did not present lessons or results of the initiatives, due to the ongoing
pandemic in the period of 2021, in the opportunity to carry out a new complementary research.
In this sense, it is suggested to analyze other perspectives involving other theories such as
communication or contingency as a way to support and organize responses to the COVID-19
crisis. Future studies can verify the materialization of risks arising from the response time and
their effects, such as their impact on the public debt.

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Submetido em: 24.03.2023
Aceito em: 28.04.2023

Revista Gestão e Secretariado (GeSec), São Paulo, SP, v. 14, n. 4, 2023, p. 6636-6662.

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