Cumprimento burocrático ou efetividade? Análise dos estudos técnicos preliminares para contratação de serviços em universidades federais

Abstract

This dissertation aims to understand whether the planning materialized in the Annual Procurement Plan is merely confirmed during the drafting of the Preliminary Technical Study, or whether, based on the solutions identified in the market, substantial alteration occurs relative to what had initially been planned. A mixed-methods research design with an explanatory sequential approach was adopted, combining quantitative analysis of a stratified sample of fifteen universities, distributed by region and size, with qualitative deepening through case studies and document analysis. A total of 88 bidding processes registered on the National Public Procurement Portal (PNCP) were examined. The quantitative data show a partially positive picture: 70.45% of the processes had a Preliminary Technical Study available, and, among these, 77.4% recorded analysis of more than one solution in the market survey. The qualitative analysis, however, revealed a substantially different reality, evidencing structural weaknesses in most of the market surveys identified, which compromise their real effectiveness. It is concluded that, in most of the processes analyzed, the Preliminary Technical Study has fulfilled a strictly bureaucratic role, without the market surveys resulting in a genuine search for available solutions. In this way, this study sought to contribute empirically to the field of public procurement planning under Law No. 14,133/2021 in Federal Universities, offering, as a Technical-Technological Product, a Methodological Guide for Market Surveys for Preliminary Technical Studies, an instrument that can be applied by other bodies or entities of the Brazilian Public Administration.