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Contratação pública : os mecanismos de transparência e controlo social no Brasil e em Portugal
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O presente estudo decorre de uma caminhada investigativa que teve como foco os mecanismos de transparência e controlo social assegurados na formação dos contratos públicos, que integram o regime geral de contratação pública no Brasil e em Portugal, e que permitem a efetivação da democracia participativa por meio do controlo social. Procede-se, assim, a análise comparativa dos referidos mecanismos nos países investigados e, com isto, busca-se contribuir para a ampliação e qualificação do controlo social da contratação pública em tais países. A relevância do tema investigado decorre do fato de que a contratação pública, por representar parte substancial da despesa dos Estados e, assim, envolver valores expressivos, está exposta aos mais diversos interesses, em especial no que se refere à corrupção, sendo capaz de fomentar verdadeiros “esquemas”, a gerar prejuízos incalculáveis aos cofres e ao interesse público, para além de demonstrar a existência de falhas na luta estatal no combate à corrupção. A gestão insatisfatória da contratação pública é maléfica à gestão estatal e traz prejuízos ao interesse público, devendo ser combatida. Essa falha administrativa pode ocorrer em qualquer das fases de formação dos contratos públicos, desde a identificação da necessidade a ser atendida e dos objetivos diretos e indiretos da contratação, passando pela seleção do fornecedor do bem ou serviço, até a execução do contrato, a constituir um desafio para a boa governança pública. Ocorre que os mecanismos de controlo estatal, não tem se mostrado suficientes nesse contexto, a necessitar de auxílio da sociedade, por meio do controlo social, visto que muito pode contribuir para a governança da contratação pública. Calha que a efetivação do controlo social exige que, nos sistemas jurídicos estatais, sejam assegurados mecanismos que o viabilizem e fomentem; tanto no que se refere a transparência, como no que se refere ao diálogo entre os atores da sociedade e o Estado. A considerar a realidade exposta, a partir de uma plataforma teórica que tratou sobre a legitimação da gestão estatal pela transparência e pelo controle social e seus reflexos na governança pública, procedeu-se à investigação, por meio do método de análise documental, a base normativa de cada país (as Constituições e as normas infraconstitucionais), bem como as diretivas europeias, realizando, como base na doutrina e jurisprudência, uma análise comparativa dos sistemas normativos dos dois países e, por fim, identificou-se os mecanismos assegurados para a efetivação da transparência e do controlo social nos procedimentos de formação dos contratos públicos, foco da presente investigação, procedendo-se a uma análise comparativa. A destacar que a transparência necessária ao acesso à informação e o exercício do controle social, apresentam-se como direitos fundamentais em ambos os países, e como tal necessitam evoluir, não admitindo retrocesso.
This study is the result of a research project focusing on the mechanisms of transparency and social control guaranteed in the formation of public contracts, which are part of the general public procurement regime in Brazil and Portugal, and which allow participatory democracy to be realized through social control. A comparative analysis of these mechanisms in the countries investigated is thus carried out, with the aim of contributing to the expansion and qualification of social control of public procurement in these countries. The relevance of the subject under investigation stems from the fact that public procurement, because it represents a substantial part of state spending and thus involves significant amounts of money, is exposed to the most diverse interests, especially with regard to corruption, and is capable of fostering real ‘scams’, generating incalculable damage to the coffers and the public interest, as well as demonstrating the existence of flaws in the state's fight against corruption. Unsatisfactory management of public procurement is harmful to state management and damages the public interest and must be combated. This administrative failure can occur in any of the phases of public procurement, from identifying the need to be met and the direct and indirect objectives of the contract, through selecting the supplier of the good or service, to the execution of the contract, which is a challenge for good public governance. It so happens that state control mechanisms have not proved to be sufficient in this context, requiring the help of society, through social control, since it can contribute greatly to the governance of public procurement. It should be noted that effective social control requires mechanisms in state legal systems to enable and encourage it, both in terms of transparency and dialogue between society and the state. Considering the reality exposed, based on a theoretical platform that dealt with the legitimization of state management through transparency and social control and their effects on public governance, we proceeded to investigate, using the documentary analysis method, the normative basis of each country (the Constitutions and infra-constitutional norms), Finally, a comparative analysis of the regulatory systems of the two countries was carried out to identify the mechanisms guaranteed to ensure transparency and social control in public procurement procedures, the focus of this research. It should be emphasized that the transparency required for access to information and the exercise of social control are fundamental rights in both countries, and as such they need to evolve, with no room for regression.
This study is the result of a research project focusing on the mechanisms of transparency and social control guaranteed in the formation of public contracts, which are part of the general public procurement regime in Brazil and Portugal, and which allow participatory democracy to be realized through social control. A comparative analysis of these mechanisms in the countries investigated is thus carried out, with the aim of contributing to the expansion and qualification of social control of public procurement in these countries. The relevance of the subject under investigation stems from the fact that public procurement, because it represents a substantial part of state spending and thus involves significant amounts of money, is exposed to the most diverse interests, especially with regard to corruption, and is capable of fostering real ‘scams’, generating incalculable damage to the coffers and the public interest, as well as demonstrating the existence of flaws in the state's fight against corruption. Unsatisfactory management of public procurement is harmful to state management and damages the public interest and must be combated. This administrative failure can occur in any of the phases of public procurement, from identifying the need to be met and the direct and indirect objectives of the contract, through selecting the supplier of the good or service, to the execution of the contract, which is a challenge for good public governance. It so happens that state control mechanisms have not proved to be sufficient in this context, requiring the help of society, through social control, since it can contribute greatly to the governance of public procurement. It should be noted that effective social control requires mechanisms in state legal systems to enable and encourage it, both in terms of transparency and dialogue between society and the state. Considering the reality exposed, based on a theoretical platform that dealt with the legitimization of state management through transparency and social control and their effects on public governance, we proceeded to investigate, using the documentary analysis method, the normative basis of each country (the Constitutions and infra-constitutional norms), Finally, a comparative analysis of the regulatory systems of the two countries was carried out to identify the mechanisms guaranteed to ensure transparency and social control in public procurement procedures, the focus of this research. It should be emphasized that the transparency required for access to information and the exercise of social control are fundamental rights in both countries, and as such they need to evolve, with no room for regression.
Descrição
Tese de doutoramento em Direito (Ciências Jurídico-políticas), Universidade de Lisboa, Faculdade de Direito, 2026
Palavras-chave
Public procurement public purchases formation of public contracts transparency of public management social control Contratação pública compras públicas formação dos contratos públicos transparência da gestão pública controlo social