Ação civil pública - Âmbito Jurídico

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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 1/25
       
Ação civil pública
1 de março de 2017
Resumo: O presente artigo visa conferir ao leitor uma fonte de estudo acerca dos principais
pontos relacionados ao instituto da ação civil pública. Diante da grave crise política, jurídica
e social que assola nosso país, com graves repercussões institucionais, o manejo de Ações
Civis Públicas tornou-se muito mais presente no cotidiano da população, o que despertou
curiosidade e muitas dúvidas. Diante disso, buscou-se através deste trabalho, apresentar o
tema de forma clara e resumida, trazendo ao alcance do leitor o conceito de tal
instituto/ferramenta e detalhes como o objeto jurídico tutelado, a legitimidade para o
manejo da ação, o procedimento a ser seguido, disponibilizando-se, ao final, um
comparativo com a ação popular, já que as semelhanças e diferenças entre essas duas
medidas judiciais ainda desperta grandes dúvidas.
Privacidade - Termos
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 2/25
Palavras-chave: Ação coletiva. Ação Civil Pública. Proteção. Direitos transindividuais
individuais e homogêneos.
Abstract: This article aims to give the reader a source of study about the main points related
to the institute of public civil action. Faced with the serious political, legal and social crisis
that afflicts our country, with serious institutional repercussions, the management of Public
Civil Actions became much more present in the daily lives of the population, which aroused
curiosity and many doubts. Therefore, the aim of this work was to present the topic in a clear
and summarized way, bringing to the reader the concept of such an institute / tool and
details such as the legal object protected, the legitimacy for handling the action, Be
followed, making a comparative comparison with popular action in the end, since the
similarities and differences between these two judicial measures still raise great doubts.
Keywords: Collective action. Related searches Protection. Individual and homogeneous
transindividual rights.
Sumário:  Introdução. 1-Conceito. 2-Previsão Legal. 3-Bens Tutelados. 4-Espécies de Tutela.
5-Legitimidade Ativa. 6-Legitimidade Passiva. 7-Procedimento: 7.1-Competência, 7.2-
Inquérito Civil, 7.3-Cautelares e Medida Liminar, 7.4-Sentença e Coisa Julgada, 7.5-Recurso,
7.6-Execução, 7.7-Despesas Processuais, 7.8-Litigância de má-fé. 8-Termo de Compromisso
de Ajustamento de Conduta. 9-Servidores Públicos. 10-Ação Popular x Ação Civil Pública.
Conclusão. Referência.
Privacidade - Termos
PUBLICIDADE
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 3/25
INTRODUÇÃO
A origem da Ação Civil Pública enquanto ferramenta jurídica remonta às ideias da class
action, difundidas na Rule 23 (Regra 23) do direito norte-americano. O legislador brasileiro,
então, inspirou-se nesse modelo para criar um instituto cujo cerne seria a proteção, a priori,
dos direitos difusos e coletivos, tendo acrescentado, posteriormente, a ideia de defesa dos
direitos individuais homogêneos.
No direito brasileiro, a ação civil pública, encontra guarida legislativa tanto na Constituição
Federal de 1988, como em normas infraconstitucionais.
O instituto da ação civil pública, como o próprio nome revela, é uma ação que possui como
objetivo primário a proteção dos interesses da coletividade, e como objetivo secundário a
responsabilização do infrator pelo dano causado a determinados bens jurídicos.
Diante da relevância social dos bens cuja a ação civil pública visa salvaguardar, como por
exemplo o meio ambiente, ela tem se firmado como sendo um, senão o maior, dos
mecanismos de efetivação da justiça social previsto no ordenamento jurídico brasileiro.
1- CONCEITO
Privacidade - Termos
PUBLICIDADE
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 4/25
A ação civil pública configura-se como uma das espécies de ações coletivas previstas no
ordenamento jurídico brasileiro para a tutela de direitos de interesse da coletividade.
Constitui-se como sendo um instrumento processual de índole constitucional, destinado à
proteção de direitos difusos, coletivos e individuais homogêneos.
Entendem-se por direitos difusos aqueles direitos transindividuais (indeterminação dos
titulares), de natureza indivisível, nos quais os titulares estão ligados entre si por
circunstâncias de fato.
Por conseguinte, os direitos coletivos também são transindividuais e de natureza indivisível,
contudo possuem titulares determináveis, ao passo que estes constituem grupo, categoria
ou classe de pessoas ligadas entre si ou com a parte contrária, em decorrência de uma
relação jurídica de base preexistente.
Por fim, consideram-se direitos individuais homogêneos aqueles cujos titulares são a
princípio indeterminados, mas passíveis de serem identificados. Além disso, possuem
natureza divisível, e decorrem de uma situação de fato ou de direito comum as partes.
Nesse sentido, podemos conceituar a ação civil pública como o instrumento de proteção e
repressão jurisdicional em face dos danos causados a direitos de interesse da coletividade.
2- PREVISÃO LEGAL
Privacidade - Termos
PUBLICIDADE
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 5/25
Trata-se de instituto legal previsto no art. 129, III, da Constituição de 1988, de acordo com o
qual uma das funções institucionais do Ministério Público é a promoção da ação civil pública
para a proteção do patrimônio público e social, do meio ambiente e de outros interesses
difusos e coletivos.
Por sua vez, encontra-se regulamentada na Lei nº 7.347/85, tendo esta lei disciplinado de
forma pormenorizada o procedimento relativo a ação civil pública, sendo considerada a
norma de maior relevância sobre o tema.
Além disso, também encontra guarida legislativa no Código de Defesa do Consumidor, mais
precisamente no Título III, que cuida da defesa do consumidor em juízo.
3- BENS TUTELADOS
Os bens tutelados pela ação civil pública são bastante vastos, ao passo que de acordo com o
art. 1º da Lei nº 7.347/85, ela tem por objeto a responsabilização pelos danos morais e
patrimoniais causados ao meio ambiente, ao consumidor, a bens e direitos de valor artístico,
estético, histórico, turístico e paisagístico, a qualquer interesse difuso ou coletivo, a ordem
econômica, à ordem urbanística, à honra e à dignidade de grupos raciais, étnicos ou
religiosos, ao patrimônio público e social.
Privacidade - Termos
PUBLICIDADE
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 6/25
O rol descrito no artigo citado acima é considerado numerus apertus, ou seja, ele é
meramente exemplificativo, logo, qualquer outro direito difuso, coletivo ou individual
homogêneo que esteja sofrendo com alguma ilegalidade pode ser resguardado por meio
desse instituto.
Calha destacar, ainda, que não pode ser objeto de ação civil pública pretensões que
envolvam tributos, contribuições previdenciárias, FGTS (Fundo de Garantia do Tempo de
Serviço), e outros fundos de natureza institucionais cujos beneficiários possam ser
individualmente identificados.
4- ESPÉCIES DE TUTELA
Como dito acima, por meio da ação civil pública busca-se à responsabilização patrimonial e
moral, que pode ser alcançada por meio de uma tutela repressiva ou por meio de uma
tutela preventiva. A primeira é acionada quando o dano ao bem já se efetivou, ou seja, para
fazer cessar ou reparar o dano. Já a segunda é utilizada para as hipóteses em que os danos
aos bens jurídicos tutelados ainda não se concretizaram, ou seja, busca-se evitar o dano.
A tutela preventiva se efetiva por meio da concessão de tutelas provisórias, as quais serão
detalhadas em outro tópico. Por sua vez, a tutela repressiva ocorrerá por meio de uma
sentença condenatória.
5- LEGITIMIDADE ATIVA
Privacidade - Termos
PUBLICIDADE
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 7/25
A legitimidade ativa na ação civil pública é classificada como extraordinária (substituição
processual), haja vista que a lei autoriza que um terceiro defenda em nome próprio direito
pertencente a outrem.
Apesar do art. 129, III, da CF/88, prevê como função institucional do Ministério Público à
propositura de ação civil pública, ele não é o único legitimado ativamente para tal ato.
O fato é que a Lei nº 7.347/85 indicou em seu art. 5º um rol exaustivos de entes legitimados
para a propositura da ação civil pública, quais sejam: a) o próprio Ministério Público; b) a
Defensoria Pública; c) Entidades da Administração Direta e Indireta; e d) Associações
constituídas a pelo menos 01 (um) ano e que apresente pertinência temática, ou seja, que
tenha em suas finalidades institucionais a defesa de um ou algum(s) do(s) bens tutelados
pela ação civil pública.
Importa salientar que o prazo mínimo de constituição das Associações exigido na lei poderá
ser dispensado, desde que fique evidente o manifesto interesse social, demonstrado pela
dimensão do dano ou pela relevância do bem jurídico a ser tutelado.
Segundo entendimento sumulado pelo STF, o Ministério Público tem legitimidade para
propor ações civis públicas tanto em defesa de direitos difusos e coletivos, quanto em
defesa de direitos individuais homogêneos. Nesse sentido dispõe a orientação insculpida na
súmula 643.
Além disso, o Ministério Público, quando não for parte no processo, deverá
obrigatoriamente atuar como fiscal da lei. Por outro lado, se a Associação abandonar a causa
ou desistir infundadamente será de responsabilidade do Ministério Público assumir a
continuidade da demanda, fato que também pode ser realizado por qualquer dos outros
legitimados ativo.
Por sua vez, calha destacar que o STF, no julgamento da ADI 3943/DF, reconheceu a
legitimidade ativa da Defensoria Pública para o ajuizamento de ação civil pública que vise a
defesa de interesses difusos e coletivos de pessoas necessitadas.
Privacidade - Termos
PUBLICIDADE
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https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 8/25
De acordo com o §3º, do art. 5º, da Lei nº 7.347/85, é dado ao Poder Público e a outras
Associações legitimadas a faculdade de se habilitar como litisconsorte no processo. Nesse
mesmo sentido, é permitido a formação de litisconsórcio facultativo entre os Ministério
Público da União, dos Estados e do Distrito Federal.
6- LEGITIMIDADE PASSIVA
Qualquer pessoa, seja ela física ou jurídica, pode figurar no polo passivo de uma ação civil
público, desde que atente contra qualquer dos bens juridicamente tutelados na ação civil
pública.
7- PROCEDIMENTO
De acordo com Marcelo Abelha Rodrigues, na obra organizada por Fredie Didier Jr. (p.374,
2008):
“A ação civil pública é uma demanda civil utilizada para a proteção de direitos
supraindividuais, e, por isso mesmo, segue uma disciplina própria que é a que resulta da
combinação da LACP[1] com o Título III do CDC[2]. […] Se houver lacuna ou conflito neste
sistema, a solução deverá ser buscada no Código de Processo Civil, observando-se uma
interpretação dos dispositivos que sejam atinentes à tutela coletiva (efetividade e
instrumentalidade)”.
Privacidade - Termos
PUBLICIDADE
https://www.google.com/intl/pt-BR/policies/privacy/
https://www.google.com/intl/pt-BR/policies/terms/
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https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 9/25
Dessa forma, conclui-se que o procedimento a ser seguido na ação civil pública é a junção
das normas ditadas na Lei nº 7.347/85 e de normas presentes no Código de Defesa do
Consumidor, devendo fazer mão do Código de Processo Civil na hipótese de lacunas.
7.1 Competência
A competência para processamento e julgamento da ação civil pública é do juízo do foro do
local onde ocorreu o dano ou onde houver a ameaça de dano, conforme dispõe o art. 2º, da
Lei nº7.437/85. Trata-se de uma competência absoluta, logo, não cabe flexibilização pelas
partes.
Além disso, a propositura é causa de prevenção do juízo para todas as ações que venham a
ser propostas e cuja causa de pedir e objeto sejam o mesmo.
7.2 Inquérito Civil
O inquérito civil é um procedimento investigativo pré-processual que possui previsão legal
expressa no §1º, do art. 8º, da Lei nº 7.437/85.
Nas palavras de Marcelo Abelha Rodrigues (p.383, 2008), “o inquérito civil é uma ferramenta,
um instrumento (sem fim em si mesmo) não jurisdicional (administrativo)” […], colocado “à
disposição do parquet, voltado à coleta de elementos para a formação de convicção deste
Privacidade - Termos
PUBLICIDADE
https://www.google.com/intl/pt-BR/policies/privacy/
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https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 10/25
órgão com vistas a eventual propositura de ação civil pública para defesa de direitos
supraindividuais.”
São características do inquérito civil: a) exclusividade; b) instrumentalidade; c) publicidade; d)
solenidade; e) dispensabilidade; f) participatividade.
A exclusividade advém do fato de que somente o Ministério Público está legalmente
autorizado a instaurar e presidir o inquérito civil. Apesar disso, ele inicia-se por iniciativa do
MP (portaria) ou por provocação de qualquer pessoa ou órgão (representação).
Por sua vez, a instrumentalidade decorre da ideia de que o inquérito civil é o instrumento
por meio do qual o Ministério Público busca elementos probatórios capazes de embasar a
propositura de futura ação civil pública.
Por seu turno, a publicidade pressupõe o respeito ao contido no art. 37, caput, da
Constituição Federal, e indica que ele é um procedimento público.
Doutra banda, a solenidade diz respeito ao fato de que ele deve seguir regras
procedimentais especificas previstas na legislação. 
A característica da dispensabilidade ocorre por que o Inquérito Civil é um procedimento
facultativo para a propositura da ação civil pública, ou seja, não é elemento obrigatório para
o início da ação civil pública.  Nesse sentido, o caput, do art. 8 da Lei nº7.437/85, estipula Privacidade - Termos
PUBLICIDADE
Lessons from the Second
Wave
Dr. Oshitani Hitoshi argues about
the "Strong Societies" and "Weak...
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22/03/2021 Ação civil pública - Âmbito Jurídico
https://ambitojuridico.com.br/cadernos/direito-constitucional/acao-civil-publica/ 11/25
que qualquer interessado pode requisitar as autoridades competentes as certidões e
informações que entender necessário para instruir a inicial da ação civil pública, as quais
deverão ser fornecidas no prazo de 15 (quinze) dias. Tais informações são fornecidas sem
que haja a necessidade de um inquérito civil. Ademais, o  próprio Ministério Público também
pode simplesmente requisitar aos órgãos públicos ou privados certidões, informações,
exames ou perícias, sem que para tanto seja preciso iniciar um inquérito civil.
Neste último caso, o prazo para o envio das informações e documentos solicitados não será
inferior a 10 (dez) dias úteis, e somente será aceita a negativa de seu fornecimento quando a
lei impuser sigilo ao documento/informação requerido. Ocorrendo tal situação, a ação
poderá ser proposta desacompanhada deles, cabendo ao juiz presidente da futura ação
requisitar os documentos e informações outrora negados. Não sendo caso de sigilo, a
entrega dos documentos solicitados pelo MP é obrigatório, e a sua negativa constitui crime,
conforme dicção do art. 10, da Lei nº 7.437/85.
Por último, a participatividade “está ligada a ideia de que a livre convicção do MP deve ser
feita por meio de elementos que atestem uma situação o mais próximo da verdade”
(RODRIGUES, p.385, 2008). Elementos estes que podem ser fornecidos pelos próprios
indivíduos integrantes da sociedade, e não apenas coletados por meio da atividade
investigativa do Ministério Público.
Privacidade - Termos
PUBLICIDADE
https://www.google.com/intl/pt-BR/policies/privacy/
https://www.google.com/intl/pt-BR/policies/terms/
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