Santos–Guarujá tunnel has rules defined for the release of R$ 2.6 billion in Federal Government funding

The first structure of its kind in Brazil will connect Santos and Guarujá through a 1.5-km fixed crossing (Sílvio Luiz/AT)

The Autoridade Portuária de Santos (APS) and the Government of the State of São Paulo, through the Secretaria de Parcerias em Investimentos (SPI), have signed a commitment agreement establishing the governance rules for the Federal Government's R\$ 2.6 billion contribution to the construction of the immersed Santos–Guarujá Tunnel. The execution of the legal instrument was required by the Tribunal de Contas da União (TCU) in May.

The document, signed on Tuesday by APS Acting President Júlio Cézar Alves de Oliveira and the State Secretary for Investment Partnerships, Rafael Benini, establishes the guarantees required for the transfer of the Federal Government's contribution, corresponding to 50% of the total public funding provided for under the concession agreement. The remaining amount will be funded by the Government of the State of São Paulo.

"The signing of this agreement transforms a commitment into a binding rule: every Federal Government resource is guaranteed with respect to its allocation, oversight, and accountability in the Santos–Guarujá Tunnel project", said the APS Acting President.

Cooperation

Rafael Benini stated that the State Government and the Federal Government are working in a coordinated manner on the project, a partnership that had previously been formalized through a technical cooperation agreement. "This new instrument complements the existing governance framework and contributes to the continuity of the tunnel's implementation."

The agreement establishes the creation of the permanent Federal Funding Governance Technical Committee. The committee will comprise representatives from APS, the State Government, and the Agência de Transporte do Estado (Artesp), with the possibility of participation by the Agência Nacional de Transportes Aquaviários (Antaq) and the Ministério de Portos e Aeroportos (MPor).

The committee's purpose is to facilitate information sharing and monitor the physical and financial progress of the project, as well as risk management throughout the implementation of the tunnel.

Disbursement of funds

In an official statement, APS explained that the agreement resolves a pending issue. The Federal Government's funds will be held in a restricted cash banking structure, known as the federal funding account, preserving Federal ownership until the time of disbursement.

"The transfer of funds from the account to the State Government will take place only after the issuance of a technical report and a duly substantiated opinion approved by APS itself. This mechanism ensures that the use of public funds remains fully proportional to the stages of construction completed", explained the manager of the Port of Santos.

TCU previously suspended the transfer

The Tribunal de Contas da União (TCU) suspended the movement of Federal Government funds in March this year and, through Decision No. 690/2026, made the release of the funding conditional upon the execution of a legal instrument regulating the operation of the funds in a transparent manner. In May, the Federal Court of Accounts authorized the movement of the funds following progress in negotiations between the State Government and APS.

Agreement

The governance agreement governing the transfer of Federal Government funds resulted from the Port of Santos authority's request to the TCU to be included as an intervening party in the tunnel agreement signed by the Government of the State of São Paulo and the Portuguese company Mota-Engil on January 28. The request was submitted to the Federal Court of Accounts in February.

However, AudPortoFerrovia, the TCU's specialized audit unit responsible for overseeing port and railway infrastructure, concluded that including APS in the agreement was inappropriate because the State Government is the granting authority for the project and conducted the procurement process.

The concession auction, carried out as a sponsored concession under a Public-Private Partnership (PPP) model, has an estimated total cost of R\$ 6.8 billion, including R\$ 5.2 billion in public funding, equally shared between the State Government and the Federal Government, with R\$ 2.6 billion contributed by each. The remaining amount will be invested by the private concessionaire.

Under the terms of the agreement, Mota-Engil established a Special Purpose Entity (SPE), TSG Concessionária, a company created exclusively to deliver the tunnel project. The entity will maintain a dedicated bank account into which the agreed funds will be deposited in accordance with the completion of the construction milestones.

Schedule

According to the State Government, the implementation schedule for the immersed Santos–Guarujá Tunnel indicates that this year will be dedicated to the preparation of the functional and detailed engineering designs, complementary studies, negotiations concerning the required land areas, and environmental licensing.

Construction activities are scheduled to begin in 2027, including the installation of construction sites, the construction of the dry dock (where the concrete tunnel segments will be manufactured), and preliminary dredging works. Production of the tunnel's precast elements is scheduled for 2028, followed by the immersion and assembly of the structures in the subsequent year.

Finishing works, installation of operational systems, and operational testing are scheduled for 2030, with the tunnel expected to enter into operation in 2031.