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Publication
O que determina a Escolha do Procedimento na Aquisição Pública de Bens e Serviços no contexto português
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Advisor(s)
Abstract(s)
Este trabalho, intitulado “O que determina a escolha do procedimento na aquisição pública de bens e serviços no contexto português”, visa estudar o public procurement em Portugal. O public procurement é muito relevante na missão da Administração Pública (AP), sendo muito importante porque representa um valor muito elevado em euros.
Subjacentes a este trabalho, encontram-se elencadas, as seguintes questões de investigação:
I – Como se caracteriza o public procurement e suas determinantes na escolha do modelo de ajuste direto?
II – Como se caracteriza o public procurement e as escolhas do modelo no setor da Saúde?
Relativamente à caraterização do public procurement, realizámos uma análise com base na revisão de literatura relevante sobre public procurement, onde inicialmente foi apresentada uma visão abrangente da gestão pública e a maneira de como os diferentes modelos incentivam o desenvolvimento do public procurement. A revisão de literatura também explorou as diferentes teorias e principais estudos que levam à escolha do procedimento e à sua eficiência. No que diz respeito à decisão e os seus determinantes, na escolha de ajuste direto, recolhemos uma base de dados de contratos públicos relativos a aquisição de bens e serviços.
Essa amostra, recolhida num portal governamental e contendo 203817 observações, cobre um período longo, entre 2008 e 2015. Desta forma, a nossa amostra consistiu numa “repeated cross section”, no sentido em que cada processo de public procurement é uma única observação no tempo. Com base nesses dados, foram observados e analisados, recorrendo ao modelo Probit, tendo como variável dependente o tipo de procedimento: Ajuste direto.
A abordagem quantitativa para procurar identificar os determinantes que levaram à escolha do modelo de ajuste direto, foi baseada num conjunto de variáveis independentes. Por último, dada a relevância do setor da saúde, foi analisado em específico este setor, utilizando a mesma linha de investigação.
Seguindo nesta abordagem e com as variáveis descritas, procuramos distinguir entre os fatores políticos, legais e económicos e setoriais que influenciam a escolha do modelo. No conjunto de fatores políticos, onde se encontram as variáveis, Ano de eleições, Tipo de governo, Governo maioritário e Mudança de governo, foram analisados quais eram os que influenciavam o aumento ou diminuição do número de ajustes diretos, tendo sido encontrados diversos fundamentos. Entre eles, a necessidade de obter benefícios políticos, o nível de poder executivo, nível de controlo e liberdade de escolha, assim como o efeito que a Troika teve no exercício governativo.No que se refere aos fatores legais e económicos, as variáveis consideradas foram Índice de corrupção, Troika, Estado de Direto (rule of law), Investimento público, Estabilidade política, Risco político e Crescimento interno bruto. Também neste conjunto de fatores o aumento ou a diminuição do número de ajustes diretos levaram-nos ao encontro de um conjunto de fundamentos, sendo a Troika um fator influenciador, assim como a transparência e a eficiência relacionada com o estado de direito (rule of law). Por seu lado o Investimento Público e o Crescimento interno bruto, remetem para um aumento de projetos, exigindo procedimentos mais simples e rápidos. O aumento da receita pode levar a uma maior flexibilidade, diminuindo o rigor de alocação de recursos públicos, dada a uma meta menor de restrição orçamental.
O último conjunto de fatores setoriais, inclui a variável Entidade. A autonomia financeira é um fator que leva a que sejam evitados processos mais complexos, uma vez que necessitam de aprovação da tutela. Em alguns casos a autonomia administrativa é utilizada para contornar possíveis dificuldades. Nos casos em que a autonomia financeira não está dependente da tutela, verifica-se a opção por processos mais simples, para fazer face à falta de capital humano qualificado e com vista ao desenvolvimento da economia local.
No contexto da saúde os fatores foram analisados comparativamente ao contexto geral. Sendo que a responsabilidade social para com os cidadãos pode sobrepor-se à obtenção de benefícios políticos ou mesmo ao poder governativo.
Relevância do estudo e aplicação prática
Considera-se que esta investigação contribuirá para o estudo geral e abrangente do conhecimento existente sobre o public procurement, enfatizando o que respeita à questão de aquisição de bens e serviços, alcançada pela identificação de fatores influenciadores no contexto de Portugal.
This work named "What drives to choose the procedure in the public procurement of goods and services in the Portuguese context “, aims to study the public procurement in Portugal. The public procurement is very relevant in the mission of Public Administration (PA) and very important, because it represents a very high value in euros. Underlying this work, the following research questions are listed, for this investigation: I - How is public procurement characterized and their determinants to choose the direct award model? II - How is public procurement characterized and what are the choices in the health sector model? Regarding the description of public procurement in Portugal, we performed an analysis based on the literature review on public procurement, where we initially presented a deep view of public management and the way in which the different models encourage the development of public procurement. The literature review also explored the different theories and main studies that led to the choice of public procurement procedure and its efficiency. Regarding the decision to the choice of direct award and its determinants, we collected a database of public contracts related to the acquisition of goods and services. This sample was collected in the government portal, containing 203817 observations, covering a period between 2008 and 2015. Thus, our sample consisted of a "repeated cross section", in the sense that each public procurement process is a single observation in time. Based on these data were observed and analysed using the Probit model. The dependent variable is the type of procedure: Direct award. The quantitative approach to identify the determinants for choosing the direct award model was based on a set of independent variables. Finally, given the relevance of the health sector it was analysed like a specific sector, using the same line of research. Following this approach and the variables described, we try to distinguish between the political, legal, economics and sectorial factors that influence the choice of the model. In the group of political factors were the variables, Election year, Type of government, Majority government, and Change de government, we analysed which were the ones influenced to increase or decrease the number of direct award, having found several reasons. These include the need for political benefits, the level of executive power, the level of control and freedom of choice as well as the effect of the Troika on governance.Regarding the legal and economic factors, the variables considered were Corruption Index, Troika, Rule of law, Public Investment, Political stability, Political Risk and Gross domestic growth. Also in this group of factors the increase or decrease in the number of direct award lead us to meet a set of fundaments, being the Troika an influential factor, as well as transparency and efficiency related to the rule of law. On the other hand, Public investment and Gross domestic growth refer an increase in the projects requiring simple and quicker procedures. Revenue growth can lead to greater flexibility reducing the accuracy of the allocation of public resources, given a lower budget constrain target. The last group of sectorial factors include the Entity variable. Financial autonomy is a fact (leads) leading to (avoiding) avoid more complex process once they need to approve (of) the wordship. In some cases, administration is used to contain the difficulties, in the case the finance autonomy is not dependant from the Administration the verification is done by simple processes to address the lack of qualified human capital and control local economy. In the context of health sector the factors were analysed comparatively to the general context. Since the social responsibility towards the citizens could take advantage versus the obtainment of political benefits or even the government power benefits. Study relevance and practical application It is considered that this research will contribute to the general and comprehensive study of existing knowledge about public procurement, emphasizing the issue of the goods and services acquisition, archived by identifying influencing factors in the Portuguese context.
This work named "What drives to choose the procedure in the public procurement of goods and services in the Portuguese context “, aims to study the public procurement in Portugal. The public procurement is very relevant in the mission of Public Administration (PA) and very important, because it represents a very high value in euros. Underlying this work, the following research questions are listed, for this investigation: I - How is public procurement characterized and their determinants to choose the direct award model? II - How is public procurement characterized and what are the choices in the health sector model? Regarding the description of public procurement in Portugal, we performed an analysis based on the literature review on public procurement, where we initially presented a deep view of public management and the way in which the different models encourage the development of public procurement. The literature review also explored the different theories and main studies that led to the choice of public procurement procedure and its efficiency. Regarding the decision to the choice of direct award and its determinants, we collected a database of public contracts related to the acquisition of goods and services. This sample was collected in the government portal, containing 203817 observations, covering a period between 2008 and 2015. Thus, our sample consisted of a "repeated cross section", in the sense that each public procurement process is a single observation in time. Based on these data were observed and analysed using the Probit model. The dependent variable is the type of procedure: Direct award. The quantitative approach to identify the determinants for choosing the direct award model was based on a set of independent variables. Finally, given the relevance of the health sector it was analysed like a specific sector, using the same line of research. Following this approach and the variables described, we try to distinguish between the political, legal, economics and sectorial factors that influence the choice of the model. In the group of political factors were the variables, Election year, Type of government, Majority government, and Change de government, we analysed which were the ones influenced to increase or decrease the number of direct award, having found several reasons. These include the need for political benefits, the level of executive power, the level of control and freedom of choice as well as the effect of the Troika on governance.Regarding the legal and economic factors, the variables considered were Corruption Index, Troika, Rule of law, Public Investment, Political stability, Political Risk and Gross domestic growth. Also in this group of factors the increase or decrease in the number of direct award lead us to meet a set of fundaments, being the Troika an influential factor, as well as transparency and efficiency related to the rule of law. On the other hand, Public investment and Gross domestic growth refer an increase in the projects requiring simple and quicker procedures. Revenue growth can lead to greater flexibility reducing the accuracy of the allocation of public resources, given a lower budget constrain target. The last group of sectorial factors include the Entity variable. Financial autonomy is a fact (leads) leading to (avoiding) avoid more complex process once they need to approve (of) the wordship. In some cases, administration is used to contain the difficulties, in the case the finance autonomy is not dependant from the Administration the verification is done by simple processes to address the lack of qualified human capital and control local economy. In the context of health sector the factors were analysed comparatively to the general context. Since the social responsibility towards the citizens could take advantage versus the obtainment of political benefits or even the government power benefits. Study relevance and practical application It is considered that this research will contribute to the general and comprehensive study of existing knowledge about public procurement, emphasizing the issue of the goods and services acquisition, archived by identifying influencing factors in the Portuguese context.
Description
Keywords
Public procurement Sourcing Aquisição Gestão Pública Teorias de Gestão Modelos de Public Procurement Procedimentos