createNewFile java.io.IOException: open failed: EACCES

I'm trying to create an excel file in a public directory with my app, but I'm getting the following error:

java.io.IOException: open failed: EACCES (Permission denied)
at java.io.File.createNewFile(File.java:939)
at br.com.fexus.fretecif.MainActivity$1.onClick(MainActivity.java:57)
at android.view.View.performClick(View.java:5201)
at android.view.View$PerformClick.run(View.java:21163)
at android.os.Handler.handleCallback(Handler.java:746)
at android.os.Handler.dispatchMessage(Handler.java:95)
at android.os.Looper.loop(Looper.java:148)
at android.app.ActivityThread.main(ActivityThread.java:5443)
at java.lang.reflect.Method.invoke(Native Method)
at     com.android.internal.os.ZygoteInit$MethodAndArgsCaller.run(ZygoteInit.java:728)
at com.android.internal.os.ZygoteInit.main(ZygoteInit.java:618)
Caused by: android.system.ErrnoException: open failed: EACCES (Permission denied)
at libcore.io.Posix.open(Native Method)
at libcore.io.BlockGuardOs.open(BlockGuardOs.java:186)
at java.io.File.createNewFile(File.java:932)
... 10 more

java.io.FileNotFoundException: /storage/emulated/0/Download/Frete&Cif.xls: open failed: EACCES (Permission denied)
at libcore.io.IoBridge.open(IoBridge.java:452)
at java.io.FileOutputStream.<init>(FileOutputStream.java:87)
at java.io.FileOutputStream.<init>(FileOutputStream.java:72)
at br.com.fexus.fretecif.MainActivity$1.onClick(MainActivity.java:109)
at android.view.View.performClick(View.java:5201)
at android.view.View$PerformClick.run(View.java:21163)
at android.os.Handler.handleCallback(Handler.java:746)
at android.os.Handler.dispatchMessage(Handler.java:95)
at android.os.Looper.loop(Looper.java:148)
at android.app.ActivityThread.main(ActivityThread.java:5443)
at java.lang.reflect.Method.invoke(Native Method)
at      com.android.internal.os.ZygoteInit$MethodAndArgsCaller.run(ZygoteInit.java:728)
at com.android.internal.os.ZygoteInit.main(ZygoteInit.java:618)
Caused by: android.system.ErrnoException: open failed: EACCES (Permission      denied)
at libcore.io.Posix.open(Native Method)
at libcore.io.BlockGuardOs.open(BlockGuardOs.java:186)
at libcore.io.IoBridge.open(IoBridge.java:438)
... 12 more

I can not create or open the file (in this case because it was not created). I already added the following code to the manifest.xml:

<uses-permission android:name="android.permission.WRITE_EXTERNAL_STORAGE"/>
<uses-permission android:name="android.permission.READ_EXTERNAL_STORAGE"/>

For more information follow the snippet of code in my MainActivity:

boolean criou = true;
Workbook workbook = new HSSFWorkbook();
File folder = new File(Environment.getExternalStoragePublicDirectory(Environment.DIRECTORY_DOWNLOADS).toString());
file = new File(folder, "Frete&Cif.xls");

try {
    if(!file.exists()) {
        file.createNewFile();
    }
} catch (IOException e) {
        e.printStackTrace();
}

Sheet sheet = workbook.createSheet(WorkbookUtil.createSafeSheetName("Frete&Cif"));

FileOutputStream output = null;

try {

    output = new FileOutputStream(file);
    workbook.write(output);

} catch (Exception e) {
    e.printStackTrace();
    criou = false;
} finally {
    if (output != null) {
       try {
          output.close();
          workbook.close();
       } catch (IOException e) {
          e.printStackTrace();
       }
    }
    System.out.println(criou);
}

Manifest.xml:

<?xml version="1.0" encoding="utf-8"?>
<manifest xmlns:android="http://schemas.android.com/apk/res/android"
package="br.com.fexus.fretecif" >

<uses-permission android:name="android.permission.WRITE_EXTERNAL_STORAGE"/>
<uses-permission android:name="android.permission.READ_EXTERNAL_STORAGE"/>

<application
    android:allowBackup="true"
    android:icon="@mipmap/ic_launcher"
    android:label="@string/app_name"
    android:supportsRtl="true"
    android:theme="@style/AppTheme" >
    <activity
        android:name=".MainActivity"
        android:label="@string/app_name"
        android:theme="@style/AppTheme.NoActionBar" >
        <intent-filter>
            <action android:name="android.intent.action.MAIN" />

            <category android:name="android.intent.category.LAUNCHER" />
        </intent-filter>
    </activity>
</application>

</manifest>