Review of 2025 government accounts points to worsening financial conditions at companies and insufficient oversight by ministries
Brazil’s Federal Court of Accounts (TCU) has warned the federal government of a growing risk that the Treasury will have to provide financial support to non-dependent state-owned companies in the coming years.
In its review of the president’s 2025 accounts, approved last week, the TCU said the worsening financial condition of several federal companies, combined with insufficient oversight by the ministries responsible for them, increases the likelihood of new Treasury injections.
The warning is based on audits of 11 non-dependent federal state-owned companies—entities that do not rely on the Treasury to fund their operations—including Brazil’s postal service Correios, Eletronuclear, the Brazilian Nuclear and Binational Energy Holdings Company (ENBPar), airport operator Infraero, asset management company Emgea, the Brazilian Mint, PortosRio, and federal port authorities known as Companhias Docas.
According to the court, some companies already pose an immediate risk to public finances, including Correios, while others have accumulated problems that, if left unaddressed, are likely to worsen and could require federal support over the medium and long term.
Non-dependent federal state-owned companies ended 2025 with a primary deficit of R$5.1 billion. Although the result improved from the R$6.7 billion deficit recorded in 2024, it maintained the deteriorating trend seen since 2023, when the group of companies began posting negative results, with a deficit of R$700 million, after surpluses of R$3 billion in 2021 and R$4.8 billion in 2022.
“The gradual reversal from positive results to growing deficits over the 2023-2025 period demonstrates a deterioration in these companies’ ability to finance themselves and adds pressure to the consolidated fiscal effort,” the court said.
According to the TCU, the financial deterioration of state-owned companies stems from a combination of factors, including loss of competitiveness, declining revenues, rigid cost structures, and reliance on one-off, non-recurring measures, such as capital injections, financial income, and asset sales, to support results.
The report also identified shortcomings in oversight by the ministries responsible for the companies, which it described as a “systemic deficiency.” According to the TCU, monitoring has not been sufficient to identify and correct problems proactively, increasing the risk that liabilities will eventually become obligations for the federal government.
Among the cases cited is Correios. The TCU described the postal service’s situation as the most serious and urgent among the companies analyzed. According to the court, the company is operating in a state of technical insolvency, has posted losses since 2022, and depends on government-backed borrowing to maintain operations. A financing agreement signed in 2025, worth R$12 billion and guaranteed by the federal government, requires a minimum government contribution of R$6 billion by 2027.
The TCU also warned of contagion risks among companies operating in the same sector. In the nuclear segment, Eletronuclear was classified as posing a high fiscal risk because of debts related to the construction of the Angra 3 nuclear plant and structural deficits arising from the operation of the Angra 1 and Angra 2 plants. According to the court, the company posted losses in 2025 and lacks sufficient resources to meet short-term obligations without resorting to new borrowing.
The TCU also highlighted that Eletronuclear’s situation directly affects Indústrias Nucleares do Brasil (INB) and puts pressure on ENBPar. In the auditors’ assessment, there is an immediate risk that Treasury injections will be needed to cover current and capital expenditures of companies within the group.
Federal port authorities present a mixed picture, with risks ranging from medium to high. Among them, PortosRio was identified as the most concerning case. The company has negative equity, insufficient cash generation, and already received R$1.14 billion in Treasury injections in 2024. Labor liabilities further aggravate the situation, as the number of active lawsuits has increased, with provisions totaling R$435 million, “driven by the obsolescence of a compensation and career plan that has remained unchanged for more than 15 years.”
The Port Authority of Rio Grande do Norte (Codern) was also found to be in a fragile position, marked by consecutive operating deficits from 2021 to 2024, equity restored only through an extraordinary Treasury capitalization in 2025 and an imminent risk of revenue losses. The remaining port authorities face medium risk, with vulnerabilities stemming from chronic underinvestment and rising personnel costs.
“A cross-cutting risk factor affecting all port authorities is the Portus pension fund liability, which has a significant actuarial deficit at each company and lacks restructuring plans under adequate supervision by the Ministry of Ports and Airports,” the report said.
The Brazilian Mint, meanwhile, was classified as medium risk. According to the court, the company has sustained positive results primarily through financial income generated by accumulated reserves, a strategy that may be exhausted in the coming years.
Emgea, in turn, is in a more comfortable financial position but will face uncertainty regarding its sustainability after December 2026, when its main source of revenue, linked to the management of housing-related claims from the Wage Variation Compensation Fund (FCVS), comes to an end.
Brazilian Mint relies primarily on financial income from reserves to sustain positive results
Infraero was classified as low risk in the short term. Even so, the TCU warned of possible structural deterioration over the medium term because of operational restrictions imposed on Santos Dumont Airport, its only profitable asset.
“In the company’s own projections, maintaining these restrictions represents cumulative losses of R$983 million by 2030 compared with a scenario of greater operational flexibility, making dependence on Treasury support likely after 2030,” the court said.
Economist Alexandre Andrade, director of Brazil’s Independent Fiscal Institution (IFI), said the economic and financial deterioration of federal state-owned companies currently represents a highly significant fiscal risk for the federal government. First, because a company may be reclassified as a dependent state-owned enterprise, becoming part of the federal budget and increasing pressure on spending limits established under Brazil’s fiscal framework.
The second risk involves capital injections, which also place pressure on spending caps. “These injections constitute primary expenditures and can limit room for other spending within the fiscal framework’s caps. Even if the contributions are structured so that they are not directly recorded in the primary balance, they may increase gross debt through the issuance of government bonds,” said Andrade.
The economist said the lack of monitoring indicators for state-owned companies can encourage management to take excessive risks or expand expenditures, especially payroll costs, beyond cash-generation capacity, on the assumption that the National Treasury will rescue the company if necessary. “In that case, society as a whole would bear the cost,” the IFI director said.
In a statement, Codern said it continues to generate sufficient resources to fund operations and meet its obligations on a regular basis. The company also said accounting results in recent years had been affected by non-cash expenses, including depreciation, provisions and monetary adjustments, which affect accounting results but not operational capacity or liquidity. Regarding the capital injection received in 2025, the company said the capitalization helped “restore the company’s equity structure,” while it continues to implement measures to increase operational efficiency, strengthen revenues and improve results.
Codeba said the company is profitable and has consistently distributed dividends to shareholders. “In 2025, it achieved a record liquidity position of R$331.2 million, reflecting excellent operational management and the strategic recovery of assets,” the company said.
The other state-owned companies contacted did not respond to a request for comment. The Ministry of Management and Innovation in Public Services, which oversees the Secretariat for State-Owned Enterprises, also did not respond.
- By Giordanna Neves and Jéssica Sant’Ana — Brasília
- Source: Valor International
https://valorinternational.globo.com/

/i.s3.glbimg.com/v1/AUTH_63b422c2caee4269b8b34177e8876b93/internal_photos/bs/2026/Y/m/7W93nZSReeEIhvb8tFIg/imagem1.jpg)