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The Gerontologist

cite as: Gerontologist, 2018, Vol. 58, No. 4, 611–617


doi:10.1093/geront/gny019
Advance Access publication
March 21, 2018

International Spotlight

Aging in Brazil

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Lycia Tramujas Vasconcellos Neumann, MPA* and Steven M. Albert, PhD, MSc, FGSA
Department of Behavioral and Community Health Sciences, School of Public Health, University of Pittsburgh,
Pennsylvania.
*Address correspondence to: Lycia Tramujas Vasconcellos Neumann, Department of Behavioral and Community Health Sciences, School of
Public Health, University of Pittsburgh, 130 De Soto Street, Pittsburgh, PA 15261. E-mail: lycianeumann@gmail.com

Received: October 29, 2017; Editorial Decision Date: February 14, 2018

Decision Editor: Rachel Pruchno, PhD

Abstract
The population in Brazil is aging at a fast pace and in a context of historical socioeconomic and regional disparities. In
the last decades, the country has developed important policies and legal mechanisms to guarantee older adults’ right to
age well and with dignity. The implementation of these policies and laws, however, has been slow and hampered by lack
of coordination and resources. With an estimate of 64 million seniors living in the country by 2050, Brazil has important
public policy issues to address, such as the poor implementation of the National Policy of the Elderly, the urgency of Social
Security Reform, and the need for a comprehensive long-term care policy for older adults.
Keywords: Demography, Public policy, Research on aging, International spotlight, Brazil

Out of the estimated 2 billion older adults who will rep- increases the pressure for governments to address historical
resent 22% of the global population in 2050, 80% will challenges in areas such as social security, health, education,
be living in developing countries. And although in most housing, employment, and urban development. A combination
developed countries the aging of the population has been of greater societal awareness, community support, effective
a gradual process consequent to substantial social and eco- public policies, and legislation is needed to ensure people age
nomic growth, populations in many developing countries with dignity and high quality of life, maintaining their active
are aging before having had the chance to increase wealth role as citizens and their importance to the society (Braga, Del
and reduce social disparities (World Health Organization, Maestro Filho, Silveira, & Guimaraes, 2008).
2012). This is the case of Brazil, the largest country in South This article aims to give a brief overview of aging in
America, with the fifth largest population in the world, and Brazil by presenting some of the demographics and char-
with great social and economic disparities. Its population, acteristics of the older adult population, the principles and
currently over 200 million people, is aging at a rapid rate, innovative processes used in developing the main legisla-
and despite some recent improvements in socioeconomic tion for the rights of older people, a bit of the history and
status and health indicators, recent studies show that health current research agenda on aging, and finally some of the
disparities in old age have not changed in the last 10 years key policy issues in the country.
(Braga, Lima-Costa, César, & Macinko, 2015).
The population growth of people aged 60 and older from
10% to 20%, which took France about 150 years to com- The Demographics of Aging in Brazil
plete, is happening in Brazil in less than 20 years (World Health Under Brazilian law, “older adults” are 60 years of age or
Organization, 2015). The fast aging of the population in Brazil older, a group that represented 9.7% of the population in

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612 The Gerontologist, 2018, Vol. 58, No. 4

Figure 2. Literacy and school years for the older adult population by
gender (1983, 1993, and 2004). Reprinted from Camarano et al. (2016,
p. 85).

have had mixed results. Although some scholars argue


that inequalities in health cannot be attributed to a race

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apart from socioeconomic contexts, others state that
black and brown older adults form a more vulnerable
group due to a lifetime of unequal exposure to health
risks (Oliveira et al., 2014).
The proportion of households with seniors increased from
Figure 1. Distribution of Brazil’s population by age groups, from 2004 22.3% in 1983 to 31.2% in 2014. Among these households,
to 2060. Reprinted from Instituto Brasileiro de Geografia e Estatística
85.2% have access to water and 83.9% access to garbage col-
(2015, p. 14).
lection. Nevertheless, only half of these homes are connected
2004, 13.7% in 2014, and is estimated to represent 18.6% to the sewage system, which continues to be one of the biggest
in 2030 and 33.7% in 2060 (Figure 1). (Instituto Brasileiro sanitary deficiencies in the country (Camarano et al., 2016).
de Geografia e Estatística, 2015). Women represent the The first census of nursing care facilities identified 84,000
majority of older adults in the country and have a higher institutionalized seniors, which represents less than 1% of the
life expectancy at age 60 and 80 (Instituto Brasileiro de older adult population (Camarano & Kanso, 2010).
Geografia e Estatística, 2009). Recently, the racial compos- In the last few decades, demographic, economic, and social
ition of the older adult population has changed in the coun- changes have substantially transformed family arrangements
try, with the proportion of whites decreasing from 61.7% in Brazil. Although in 1980 most seniors were living with
in 2000 to 56.8% in 2010, and the proportion of blacks a spouse and children (43.7%), in 2014 only 25.5% had
and browns increasing in the same period from 6.9% to this residential arrangement, and most households (36%)
7.7% and from 29.5% to 33.8%, respectively (Oliveira, involved older women living by themselves or with their chil-
Thomaz, & Silva, 2014). (Data on color/race are origin- dren. The proportion of seniors living with children or rela-
ally from the National Household Sample Survey (PNAD) tives, which is considered an indicator of physical, mental,
where respondents self-classify themselves and are encour- financial, or social fragility, had a significant drop, especially
aged to refer to their color skin as a race proxy. This pro- among women (from 26.7% in 1983 to 13.7% in 2014).
cedure is based on the assumption that the combination Conversely, the proportion of older women as the “chief
of color and race better describes with which racial group of the house” (chefe da casa) has increased from 33.4% to
individuals identify themselves [Oliveira et al., 2014].) 51.9% in the same period (Camarano et al., 2016).
As demonstrated in Figure 2, in the last 30 years, literacy Older adults have increasingly become an important
among older adults has increased, from 51.9% in 1983 to source of income for families. Data from the Brazilian
77.2% in 2014, a change that has been even greater for older Institute of Geography and Statistics (IBGE) show that in
women. Nevertheless, the average number of school years for 2013, 76.1% of older adults in Brazil were retired or pen-
the older adult population, despite having doubled in the last sioners, and among those, 15.6% were still working to sup-
three decades, was still very low in 2014 (5.1 years for men and plement their income. Also, of the older adult population,
4.9 years for women; Camarano, Kanso, & Fernandes, 2016). 64.4% were the main source of income for their families
According to the 2015 World Report on Aging and (Ribas, 2016). Brazil is one of the few countries with no
Health, a child born in Brazil in 2015 can expect to live restrictions for retirees to continue working, and therefore,
20 years longer than one born 50 years ago. In the last older adults are able to combine income from pensions and
few decades, the country has gone through an important salaries. As a result, by 2014 retired men and women rep-
epidemiologic transition, and although deaths by infec- resented 51.6% and 55.5% of older workers, respectively
tious diseases decreased from 40% of the total registered (Camarano et al., 2016; Gugel, 2016).
deaths in 1950 to less than 10% by 2000, deaths from The Brazilian pension system is formed by three pillars.
cardiovascular diseases increased from 12% to over 40% The largest pillar is the General Social Security Regime
in the same period (Instituto Brasileiro de Geografia e (Regime Geral da Previdência Social—RGPS), a man-
Estatística, 2009). Studies investigating the impact of datory pay-as-you-go system managed by the National
race on the health of the older adult population in Brazil Social Security Institute (Instituto Nacional do Seguro
The Gerontologist, 2018, Vol. 58, No. 4 613

Social—INSS), which covers employed private-sector work- the National Policy for the Elderly, and the Statute for the
ers as well as self-employed professionals and elected civil Elderly (Gugel, 2016).
servants. Public-sector employees are under a separate pen- The initial movement for a national policy for the older
sion system, the Pension Regimes for Government Workers adult population began in the 1970s, when the country was
(Regime Próprio de Previdência Social—RPPS). As each still under military dictatorship, in a joint effort of non-
federal unit can have its own system, there are more than governmental organizations, professionals, and volunteers
2,400 specific pension regimes for public servants, which are working with seniors. In 1976, the first Social Policy for the
managed by the federal government, states, and municipali- Elderly proposed the engagement of communities to help
ties with specific financing rules. The third pillar is the rela- seniors stay with their families and a review of the criteria
tively new Private Pension Regime (Regime de Previdência for licensing new long-term care institutions for seniors.
Complementar—RPC), which offers occupational and indi- The policy also called for the creation of specialized medical
vidual plans on a voluntary basis (Associação Brasileira das services for seniors (including home care), the review of the

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Entidades Fechadas de Previdência Complementar, 2014; social security system and programs for retirement prepara-
Caetano, 2015; Rangel & Saboia, 2015). tion, professional training for senior care, and the systematic
The total number of pensions paid by the RGPS collection of data about the country’s older adult population
increased 2.8-fold from 1988 to 2013, which is attributed (Oliveira Alcântara, Camarano, & Giacomin, 2016).
to a combination of greater social security coverage and the With re-establishment of democracy, aging became
aging of the population. In 2013, women received 59% of part of the political debate and was included in the 1988
the RGPS benefits. However, they received the vast major- Constitution. The so-called “citizen constitution” intro-
ity (81%) of the “survivor benefits,” a category that pays duced the concept of social security as a citizen’s right,
less than the “time per contribution” category, where men making Brazil one of the pioneers in Latin America in
were 71% of the beneficiaries, which indicates clear income Social Security Policy. Also, health care, education, and
inequality among seniors based on gender (Camarano & social assistance were made available to the entire popula-
Fernandes, 2016). tion (Oliveira Alcântara et al., 2016).
Social security benefits have been an important strat- The National Policy for the Elderly (Política Nacional
egy to reduce poverty and inequalities in old age. In 2014, do Idoso—PNI), created in 1994, lists a set of actions to
about 75% of the whole older adult population in the be implemented by governments to ensure seniors’ social
country received some social security benefit, including rights, autonomy, integration, and effective participation in
RGPS, RPPS, and welfare benefits (Camarano & Fernandes, society. Among the key stakeholders engaged in the process
2016). The proportion of old women with no income has of designing this law were the Brazilian Bar Association
dropped from 34.3% in 1983 to 12.4% in 2014, which (OAB), the National Confederation of Bishops of Brazil
was even lower (about 5%) among those aged 80 years or (CNBB), the National Gerontology Association (ANG),
older. In 2014, about 80% of older women’s income was and the Brazilian Geriatrics and Gerontology Society
provided by social benefits (Camarano et al., 2016). (SBGG; Braga et al., 2008; Camarano, 2016; Oliveira
Social security policies have also had an important Alcântara, 2016). As part of the implementation of the
role in pulling many seniors out of poverty and in reduc- National Policy, the Statute for the Elderly (Estatuto do
ing racial disparities among the older adult population. Idoso) was published in 2003 and has been considered not
A recent study showed that a greater proportion of the only an important policy enforcement instrument but also
black population leaves poverty when aged, and black an innovative way to promote elder rights.
older adult population receive higher returns from their The statute, which was the result of more than 7 years
contributions when compared with white seniors of the of discussion involving legislators and representatives
same cohort (Zorzin, Wajnman, & Turra, 2016). from various public-interest organizations, states that the
family, community, society, and government are respon-
sible for assuring seniors’ rights to life, freedom, respect,
Public Policies and Legislation for the Rights dignity, food, health, family, and community support. It
of the Older Adult Population also determines that every individual at age 65 and older
In Brazil, aging with dignity is considered a fundamental who cannot provide for their own livelihood is eligible to
human right, protected and promoted under the princi- a noncontributory lifelong pension of 1 minimum wage
ples of a Social State of Democratic Rights. Article 230 per month (R$954 or about U.S.$300) paid by the Federal
of the 1988 Constitution states that “the family, society Government (Brasil. Câmara dos Deputados, 2013; Müller,
and the State have the duty to support the elderly, ensur- 2014; Nobrega, Faleiros, & Telles, 2009).
ing their participation in the community, defending their Seniors’ participation in the planning, implementation,
dignity and well-being, and guaranteeing them the right to and evaluation of policies, plans, and programs is one of
life” (Giacomin & Gama Maio, 2016, p. 137). There are the guidelines of the National Policy for the Elderly. To that
currently three major legal instruments establishing and end, the policy establishes national, state, and municipal
protecting elder rights in the country: the Constitution, Boards for the Elderly (Conselho Nacional, Estaduais e
614 The Gerontologist, 2018, Vol. 58, No. 4

Municipais do Idoso), which are permanent and delibera- (Lima-Costa, Mambrini, Peixoto, Malta, & Macinko, 2016).
tive bodies formed by an equal number of representatives Although there is great diversity among the older adult
from governmental and nongovernmental organizations population based on socioeconomic status and regional dif-
(Couto, 2016a; Oliveira Alcântara, 2016). ferences, there are three key public policy issues that affect
older adults in the whole country: the poor implementation
of the National Policy of the Elderly, the urgency of social
Research on Aging: An Overview security reform, and the need for a comprehensive long-term
For most of its history, Brazil was considered “a young care policy.
country,” a country formed by young people, and this is still The National Policy for the Elderly sets the direction for
the belief of many of its citizens. It required the visionary a country where people should be able to age well, with
leadership of researchers and professionals to build aware- greater autonomy, better health, social engagement, partici-
ness in government and society of demographic changes pation in the job market, and quality of life. However, lack

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and the need for policies and legislation that support of coordination, political will, and budgetary provision
healthy and active aging (Barros & Junior, 2015; Rauth & have been critical barriers to its implementation (Couto,
Py, 2016). The 1987 article, “Aging: A Brazilian Reality,” 2016b). According to Rauth and Py (2016), “with regard
presented trends in mortality, fertility, and life expectancy to national social policy for old age, this grew in discourse,
from the early 20th century to 2015 and showed that Brazil but stalled in practice. …Recognizing rights is not enough
would go through an aging process comparable to devel- as it is necessary to provide them” (p. 61). In practice, sen-
oped countries (Veras, Ramos, & Kalache, 1987). iors still do not have the recommended priority in health
Two years later, the National Association of Gerontology and social services and their specific needs have not yet
published the report, “Policy Recommendations for the been properly addressed (e.g., regulation of long-term care
Third Age in the 90s,” urging governments to prioritize facilities, integration of the three levels of health care, pre-
issues related to aging. The report argued that the value of vention and management of chronic illnesses).
social problems should not be measured only by a particu- Besides the increasing needs for health and social ser-
lar group’s percentage of the total population but rather by vices, the aging of the population also raises concerns
the living conditions of that group. The report also stated about the negative impact on the workforce. The old-age
that the country did not have accurate and specific data dependency ratio was 15.6 in 2010 but is estimated to be
about the older adult population (Associação Nacional de 51.9 in 2050, a trend that raises a red flag for urgent social
Gerontologia, 1989; Rauth & Py, 2016). security reform in Brazil (Simões, 2016).
It was only in 1988 that the aging of the Brazilian Social security is considered a fundamental right in the
population was included in the research agenda of the 1988 Constitution, and the system is based on three pillars:
National Association of Population Studies (ABEP), which health, pension, and welfare assistance. As explained earlier,
brings together scholars for scientific exchange and analy- the pension system is multipronged, with most beneficiar-
sis of national demographic trends (Bezerra, de Almeida, ies covered by the RGPS system. Currently, RGPS spends
& Nóbrega-Therrien, 2012). Since then, the number almost R$34 billion (U.S.$10.8 billion) every month, which
of researchers, studies, and publications on aging has represents about 8% of the country’s GDP. This expense,
increased exponentially (Bezerra et al., 2012; Donizete however, is estimated to reach 18% of the GDP by 2060,
Prado & Dutra Sayd, 2004). threatening the sustainability of the entire social security
Some of the early population studies on aging conducted system. In 2016, the RGPS deficit was about R$150 bil-
in Brazil are still frequently cited and considered funda- lion (U.S.$47.7 billion), which, added to the R$77 billion
mental to the development of the research agenda in the (U.S.$27.5 billion) deficit of the Federal Pension Regime
country, such as Projeto Epidoso (1991), Projeto Bambuí for civil and military public servants, raises an alarming
(1997), and Estudo SABE (1999). Table 1 presents some of scenario for the Brazilian government and society (Brasil.
the key studies on aging currently active in Brazil. Ministério da Previdência Social, 2017).
There are no publicly accessible secondary data sets spe- In December 2016, President Michel Temer submitted a
cifically on aging in Brazil, but many researchers have been new pension bill to Congress with the purpose of ensuring
using the data from national household surveys produced the sustainability of the social security system and promot-
by the IBGE, such as the Health National Survey (PNS) ing equity between workers and public servants. The main
from 2013, and the National Household Sample Survey changes include the required time of contribution, a mini-
(PNAD), published most recently in 2015. mum age for retirement (Brazil is one of the five countries
that do not have a minimum age), and the proportional
value of benefits based on time of contribution (Alves, 2016;
Key Public Policy Issues Brasil. Ministério da Previdência Social, 2017; Camarano &
As Brazil is experiencing one of the world’s most rapid rates Fernandes, 2016; Marchesan, Kaoru, & Abe, 2017).
of demographic aging, historical, social, and economic issues With the vast majority of the older population consist-
need to be addressed along with new emerging problems ing of community-dwelling seniors, the demand for elder
Table 1. Key Research Studies Currently Active in Brazil

Primary
Study Investigator Research characteristics and objectives

Projeto EPIDOSO II Incidência de Perda Funcional (PF) em idosos Luiz Roberto Urban cohort study that aims to identify avoidable risk factors for functional loss and to assess the
e efetividade de ações de promoção da saúde na prevenção da PF Ramos effectiveness of health promotion interventions aimed at preserving and restoring the functional
(Incidence of Functional Loss in the elderly and effectiveness of actions capacity of the older adults and social inclusion of the older adults.
of health promotion in the prevention of functional loss) (active since
2007)
The Gerontologist, 2018, Vol. 58, No. 4

ELSI-Brasil: Estudo Longitudinal de Saúde e Bem-Estar dos Idosos Maria Fernanda Elsi-Brasil is part of an international consortium of longitudinal studies, conducted on national
Brasileiros (Longitudinal Study of Health and Welfare of the Brazilian Lima-Costa representative samples of the population aged 50 and over. In Brazil, this population-based cohort
Elderly) (active since 2012) study is based on a national probabilistic sample of 10,000 adults.
The study uses the conceptual framework of other “Health and Retirement Studies” to allow for
comparisons between countries. The main objective is to investigate the evolution and determinants
of health conditions, functional capacity, and use of health services among older adults.
The study adopts a population health multidisciplinary approach that combines economics,
epidemiology, health planning, biostatistics, geriatrics, gerontology, and demography, among other
perspectives.
Fibra 80 +: Fragilidade nos Idosos Brasileiros (Fragility in Elderly Anita Liberalesso The study aims to determine the prevalence, risk and protective factors for frailty, cognition, and
Brazilians) (active since 2016) Neri mortality, considering sociodemographic indicators, health conditions, independence, lifestyle,
sociability, depression, subjective well-being, personality, and sense of psychological adjustment in
people aged 80 and over.
Padrões de envelhecimento físico, cognitivo e psicossocial em idosos Anita Liberalesso A descriptive, comparative, and cross-sectional study with people aged 80 years and over, with the
longevos que vivem em diferentes contextos (Patterns of physical, Neri aim of identifying the correlation between demographic and socioeconomic risk variables, stressful
cognitive and psychosocial aging in older adults living in different events experienced in childhood and old age, indicators of cognitive reserve, physical health, social
contexts) (active since 2015) resources, and elements of psychological resilience.
A participatory approach to the needs of dependent older people: Renato Peixoto The study aims to identify the main challenges and unmet needs of dependent older adults in four
barriers, facilitators, and sustainable solutions (active since 2016) Veras areas: environment (their family environment and external environment), physical, psychological,
and social. Research findings will be used to assess the need for better public policies for older
dependents and their caregivers, as well as to identify low-cost solutions for immediate needs.
Modelo de Hierarquização da Atenção ao Idoso com base na com- Renato Peixoto The objective of the study is to improve the hierarchical model of health care for older adults, focus-
plexidade dos cuidados: Proposta de monitoramento dos três níveis de Veras ing on the three initial levels of care, which concentrates 90% of older adults, by monitoring and
cuidado na assistencia suplementar (Hierarchical Model of Healthcare evaluating the systems’ structure, processes, and results.
for the Elderly based on the complexity of care: Monitoring the three
levels of private healthcare services) (active since 2015)

Note: The information presented in this table is from Plataforma Lattes, a virtual platform created and maintained by CNPq, which integrates the databases of curricula, research groups and institutions in the areas of Science
and Technology operating in Brazil.
615

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