Compras de material de consumo na UFJF: falhas na documentação preparatória e impactos na efetividade das aquisições

Abstract

This study investigates the challenges faced in the procurement process of consumable materials at the Federal University of Juiz de Fora (UFJF), carried out through electronic bidding (e-procurement), focusing on the shortcomings identified in the initial phase, particularly in the preparation of documentation by the requesting units. The analysis focuses on the processes conducted by the Supply Coordination Office (COSUP), the sector responsible for managing procurement procedures within the institution. It is based on the premise that inconsistencies at this stage compromise the effectiveness of acquisitions, generating rework, waste of resources, and unsuccessful bidding processes. The general objective of this research is to understand the problems occurring in the preparation of the documentation that initiates the procurement process for consumable materials at UFJF and their effects on acquisition outcomes, in order to propose improvement strategies. The New Public Procurement and Contracts Law (Law No. 14,133/2021) constitutes a central regulatory framework, as it establishes new requirements that make the preparatory stage even more relevant. It is observed that the inadequate preparation of documents-among them the Terms of Reference (TR) and price research-as well as the imprecise description of the object to be acquired, has generated difficulties that may result in unsuccessful procurements or ineffective purchases, compromising the functioning of the university’s activities. The theoretical framework is based on the New Institutional Economics (NIE) and on the concepts of procurement management, efficiency, effectiveness, and planning. The findings indicate that shortcomings in price research and in the specification of the object, which are part of the preparation of procurement planning documents, are the main factors leading to unsuccessful procurement processes or inadequate acquisitions. The research also identifies institutional weaknesses related to the lack of standardization and insufficient training of the personnel responsible for submitting procurement requests (requesting units), aggravated by the requirements introduced by the new legislation. The methodology adopted for the field research was qualitative, combining documentary analysis of reports extracted from the Integrated Academic Management System (SIGA), focusing on requests returned without successful procurement, and semi-structured interviews with COSUP staff and with requesting personnel from different academic and administrative units of UFJF, in order to explore the difficulties in preparing procurement planning documentation and the impacts of these shortcomings on procurement outcomes. The data analysis revealed that the main weaknesses in the preparatory phase are concentrated in price research and in the preparation of the Terms of Reference and the Preliminary Technical Study (PTS), generating rework, delays, deserted items, and failed bidding processes. It was also found that the absence of formal and continuous training for requesting staff, combined with the greater documentary complexity introduced by Law No. 14,133/2021, intensifies these difficulties and creates insecurity among requisitioners in preparing the required documentation. In response to these findings, an Educational Action Plan was developed, structured around four actions: updating the procurement manual; offering periodic training sessions for requisitioners; reorganizing formal communication channels between COSUP and the requesting units; and strengthening the internal practices of procurement officers. These actions aim to reduce documentary failures and increase the effectiveness of consumable material procurement at UFJF.