Outros artigos de André Saddy Artigo doutrinário
Limits of bid requirements for operational and professional technical capacity in bidding processes for engineering works and services in building information modeling (BIM) in Brazil
Citação acadêmica
Copie a referência deste artigo no estilo da sua escolha e cole no seu trabalho. Geramos a citação no padrão exigido pela maioria das revistas jurídicas brasileiras. Ver guia completo.
Ver prévia das três referências▸
ABNT
SADDY, André. Limits of bid requirements for operational and professional technical capacity in bidding processes for engineering works and services in building information modeling (BIM) in Brazil. professor_upload, 2026. Acesso via: JurisTube — Acervo Digital de Direito. Disponível em: https://juristube.com.br/colunistas/andre-saddy/limits-of-bid-requirements-for-operational-and-professional-technical-capacity-i. Acesso em: 24 set. 2026.
APA
Saddy, A. (2026). Limits of bid requirements for operational and professional technical capacity in bidding processes for engineering works and services in building information modeling (BIM) in Brazil. *professor_upload*. https://juristube.com.br/colunistas/andre-saddy/limits-of-bid-requirements-for-operational-and-professional-technical-capacity-i
Chicago
SADDY, André. 2026. “Limits of bid requirements for operational and professional technical capacity in bidding processes for engineering works and services in building information modeling (BIM) in Brazil.” *professor_upload*. https://juristube.com.br/colunistas/andre-saddy/limits-of-bid-requirements-for-operational-and-professional-technical-capacity-i
BibTeX
@article{andr-saddy-limits-of-bid-requirements-for-operation-2026,
author = {Saddy, André},
title = {Limits of bid requirements for operational and professional technical capacity in bidding processes for engineering works and services in building information modeling (BIM) in Brazil},
journal = {professor_upload},
year = {2026},
url = {https://juristube.com.br/colunistas/andre-saddy/limits-of-bid-requirements-for-operational-and-professional-technical-capacity-i}
}_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
1
LIMITS OF BID REQUIREMENTS FOR OPERATIONAL AND
PROFESSIONAL TECHNICAL CAPACITY IN BIDDING
PROCESSES FOR ENGINEERING WORKS AND SERVICES IN
BUILDING INFORMATION MODELING (BIM) IN BRAZIL
André SADDY1, Yasmin CASTRO2, Ketlyn FERNANDES3
_____________________________________________________________
INDEX
1 Professor of administrative law at the Faculty of Law, Master's in Constitutional Law and Doctorate in Rights,
Institutions and Business at the Fluminense Federal University (UFF). Professor of administrative law at the
Department of Law at the Pontifical Catholic University of Rio de Janeiro (PUC-Rio). Email:
andresaddy@yahoo.com.br. Postdoctoral researcher at the Centre for Socio-Legal Studies, Faculty of Law,
University of Oxford; European Doctorate in Current Issues in Administrative Law from the Faculty of Law,
Complutense University of Madrid, with support from the Complutense Predoctoral Scholarships in Spain; Master's
Degree in Public Administration from the Faculty of Law, University of Lisbon, with support from the Alßan
Program; European Union High Level Fellowship Program for Latin America, postgraduate in Public Regulation
and Competition from the Center for Public Law and Regulation Studies (CEDIPRE) at the Faculty of Law of the
University of Coimbra. Executive Director of the Brazilian Institute of Administrative Law (IBDA). Vice-President
of the Institute of Administrative Law of Rio de Janeiro (IDARJ). Director-President of the Center for Empirical
and Legal Studies (CEEJ). Creator and Coordinator of the Research, Teaching, and Extension Group on
Contemporary Administrative Law (GDAC). Founding partner of the law firm Saddy Advogados. Consultant and
legal advisor.
2 Master's degree in Law from the Federal University of the State of Rio de Janeiro (2020). Email:
yasmincastro.adv@gmail.com. PhD candidate in Public Law at the University of Coimbra. Master's degree in Law
and Public Policy from the Federal University of the State of Rio de Janeiro. Postgraduate degree in Public Law.
Specialist in Anti-Corruption Compliance from Legal Ethics Compliance (LEC). Bachelor's degree in Law from the
Federal University of the State of Rio de Janeiro. Partner at Castro & Castro Advogados. Consultant in Public
Management. Member of the Institute of Administrative Law of the State of Rio de Janeiro – IDARJ.
3 Bachelor's degree in Law from the Fluminense Federal University (UFF). Email: ketlynfernandes@id.uff.br.
Bachelor's degree in Law from the Fluminense Federal University (UFF). Lawyer at Saddy Advogados. Legal
resident at the Attorney General's Office of the Municipality of Rio de Janeiro, assigned to the Administrative
Attorney's Office (PGM/PADM). Postgraduate student in Contemporary Municipal Law at the State University of
Rio de Janeiro (UERJ). Researcher at the Research, Teaching, and Extension Group in Contemporary Administrative
Law (GDAC). Winner of the Professor Raquel Dias da Silveira Motta Award, conferred by the Brazilian Institute
of Administrative Law (IBDA). Winner of the II Budget and Rights Award, conferred by ASSECOR, ABPN, and
the Tide Setubal Foundation.
______________________________________________________________________________
Copyleft – Ius Publicum
1
LIMITS OF BID REQUIREMENTS FOR OPERATIONAL AND
PROFESSIONAL TECHNICAL CAPACITY IN BIDDING
PROCESSES FOR ENGINEERING WORKS AND SERVICES IN
BUILDING INFORMATION MODELING (BIM) IN BRAZIL
André SADDY1, Yasmin CASTRO2, Ketlyn FERNANDES3
_____________________________________________________________
INDEX
1 Professor of administrative law at the Faculty of Law, Master's in Constitutional Law and Doctorate in Rights,
Institutions and Business at the Fluminense Federal University (UFF). Professor of administrative law at the
Department of Law at the Pontifical Catholic University of Rio de Janeiro (PUC-Rio). Email:
andresaddy@yahoo.com.br. Postdoctoral researcher at the Centre for Socio-Legal Studies, Faculty of Law,
University of Oxford; European Doctorate in Current Issues in Administrative Law from the Faculty of Law,
Complutense University of Madrid, with support from the Complutense Predoctoral Scholarships in Spain; Master's
Degree in Public Administration from the Faculty of Law, University of Lisbon, with support from the Alßan
Program; European Union High Level Fellowship Program for Latin America, postgraduate in Public Regulation
and Competition from the Center for Public Law and Regulation Studies (CEDIPRE) at the Faculty of Law of the
University of Coimbra. Executive Director of the Brazilian Institute of Administrative Law (IBDA). Vice-President
of the Institute of Administrative Law of Rio de Janeiro (IDARJ). Director-President of the Center for Empirical
and Legal Studies (CEEJ). Creator and Coordinator of the Research, Teaching, and Extension Group on
Contemporary Administrative Law (GDAC). Founding partner of the law firm Saddy Advogados. Consultant and
legal advisor.
2 Master's degree in Law from the Federal University of the State of Rio de Janeiro (2020). Email:
yasmincastro.adv@gmail.com. PhD candidate in Public Law at the University of Coimbra. Master's degree in Law
and Public Policy from the Federal University of the State of Rio de Janeiro. Postgraduate degree in Public Law.
Specialist in Anti-Corruption Compliance from Legal Ethics Compliance (LEC). Bachelor's degree in Law from the
Federal University of the State of Rio de Janeiro. Partner at Castro & Castro Advogados. Consultant in Public
Management. Member of the Institute of Administrative Law of the State of Rio de Janeiro – IDARJ.
3 Bachelor's degree in Law from the Fluminense Federal University (UFF). Email: ketlynfernandes@id.uff.br.
Bachelor's degree in Law from the Fluminense Federal University (UFF). Lawyer at Saddy Advogados. Legal
resident at the Attorney General's Office of the Municipality of Rio de Janeiro, assigned to the Administrative
Attorney's Office (PGM/PADM). Postgraduate student in Contemporary Municipal Law at the State University of
Rio de Janeiro (UERJ). Researcher at the Research, Teaching, and Extension Group in Contemporary Administrative
Law (GDAC). Winner of the Professor Raquel Dias da Silveira Motta Award, conferred by the Brazilian Institute
of Administrative Law (IBDA). Winner of the II Budget and Rights Award, conferred by ASSECOR, ABPN, and
the Tide Setubal Foundation.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
2
1. INTRODUCTION
2. PUBLIC NOTICE AS A BINDING CALL FOR BIDS
3. QUALIFICATION PHASE
3.1 Qualification and Technical Capacity
3.1.1 Qualification and Technical Capacity in Engineering Works and
Services
4. EMPIRICAL RESEARCH METHODOLOGY
5. QUANTITATIVE RESULTS
6. QUALITATIVE RESULTS
6.1 Technical-Operational Capacity
6.2 Technical-Professional Capacity
6.3 Technical Capacity in the Composition of the Technical Note
1. INTRODUCTION
Since the advent of Brazilian Federal Decree No. 10.306/2020, establishing the use
of Building Information Modeling (BIM) in the direct or indirect execution of engineering
works and services carried out by federal public administration agencies and entities, there
has been discussion about the best way to assess the technical qualifications of bidders.
Considering the need for an isonomic, competitive bidding process with objective
judgment, the requirement for technical qualifications related to a recent, innovative
technology surrounded by specificities, whose mastery is not broad and general to the
market4, must be determined with caution in order to preserve the fairness of the bidding
process.
4 59% of organizations are at early stages of BIM maturity, while only 2.51% are at a more advanced level. See: E.
GIOVANNETTI-G. QUANDT-L. SANTANA, Mapeamento Maturidade BIM no Brasil. S./l: GrantThornton,
Sienge e Agência Brasileira de Desenvolvimento Industrial, 2022.
______________________________________________________________________________
Copyleft – Ius Publicum
2
1. INTRODUCTION
2. PUBLIC NOTICE AS A BINDING CALL FOR BIDS
3. QUALIFICATION PHASE
3.1 Qualification and Technical Capacity
3.1.1 Qualification and Technical Capacity in Engineering Works and
Services
4. EMPIRICAL RESEARCH METHODOLOGY
5. QUANTITATIVE RESULTS
6. QUALITATIVE RESULTS
6.1 Technical-Operational Capacity
6.2 Technical-Professional Capacity
6.3 Technical Capacity in the Composition of the Technical Note
1. INTRODUCTION
Since the advent of Brazilian Federal Decree No. 10.306/2020, establishing the use
of Building Information Modeling (BIM) in the direct or indirect execution of engineering
works and services carried out by federal public administration agencies and entities, there
has been discussion about the best way to assess the technical qualifications of bidders.
Considering the need for an isonomic, competitive bidding process with objective
judgment, the requirement for technical qualifications related to a recent, innovative
technology surrounded by specificities, whose mastery is not broad and general to the
market4, must be determined with caution in order to preserve the fairness of the bidding
process.
4 59% of organizations are at early stages of BIM maturity, while only 2.51% are at a more advanced level. See: E.
GIOVANNETTI-G. QUANDT-L. SANTANA, Mapeamento Maturidade BIM no Brasil. S./l: GrantThornton,
Sienge e Agência Brasileira de Desenvolvimento Industrial, 2022.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
3
This challenge is not unique to Brazil. From a broader point of view, European
systems have confronted similar tensions between promoting technological innovation and
preserving competitive access to public procurement. The European Union’s Directive
2014/24/EU empowered Member States to introduce information modelling in public works
since 2014, but implementation has varied significantly across countries, reflecting different
approaches balancing technological advancement according to the different capacity of
public administrations and economic operators in different Member States5.
This is because, as will be demonstrated, technical requirements that are too strict
or too lenient may influence the bidding process, lead to defective contracts, reduce
competitiveness, and undermine the advantages of the proposals.
For this reason, this article aims to provide an overview of the technical
requirements in public notices relating to Building Information Modeling (BIM), in order to
establish limits and suggestions to be observed by public authorities when preparing public
notices.
To this end, initially, a theoretical study will be conducted on the main concepts
related to the topic, such as the public notice as a binding instrument, the qualification phase,
specifically technical qualification, addressing the concepts, differences, and importance of
technical-operational and technical-professional capabilities in general and, specifically, in
bids for engineering works and services. Secondly, based on doctrinal and jurisprudential
notes on technical requirements for tenders, the quantitative and qualitative results of the
5 See: Art. 22, co. 4, Directive 2014/24/EU of the European Parliament and of the Council of 26 february 2014 on
public procurement and repealing Directive 2004/18/EC, which states that Member States "may require the use of
specific electronic tools, such as building information electronic modelling tools or similar" for public works
contracts and design contests. Countries such as Italy, Spain, and the United Kingdom have developed detailed
national frameworks that distinguish between minimum technical qualification requirements and weighted award
criteria, providing instructive comparative models for Brazil’s evolving approach. For an overview, see: G. M. DI
GIUDA-G. M. RACCA, From Works Contracts to Collaborative Contracts: The Challenges of Building
Information Modeling (BIM) in Public Procurement (G. M. RACCA – C. R. YUKINS eds.), Joint Public Procurement
and Innovation: Lessons Across Borders, Bruxelles, Bruylant, 2019, pp. 223–271
______________________________________________________________________________
Copyleft – Ius Publicum
3
This challenge is not unique to Brazil. From a broader point of view, European
systems have confronted similar tensions between promoting technological innovation and
preserving competitive access to public procurement. The European Union’s Directive
2014/24/EU empowered Member States to introduce information modelling in public works
since 2014, but implementation has varied significantly across countries, reflecting different
approaches balancing technological advancement according to the different capacity of
public administrations and economic operators in different Member States5.
This is because, as will be demonstrated, technical requirements that are too strict
or too lenient may influence the bidding process, lead to defective contracts, reduce
competitiveness, and undermine the advantages of the proposals.
For this reason, this article aims to provide an overview of the technical
requirements in public notices relating to Building Information Modeling (BIM), in order to
establish limits and suggestions to be observed by public authorities when preparing public
notices.
To this end, initially, a theoretical study will be conducted on the main concepts
related to the topic, such as the public notice as a binding instrument, the qualification phase,
specifically technical qualification, addressing the concepts, differences, and importance of
technical-operational and technical-professional capabilities in general and, specifically, in
bids for engineering works and services. Secondly, based on doctrinal and jurisprudential
notes on technical requirements for tenders, the quantitative and qualitative results of the
5 See: Art. 22, co. 4, Directive 2014/24/EU of the European Parliament and of the Council of 26 february 2014 on
public procurement and repealing Directive 2004/18/EC, which states that Member States "may require the use of
specific electronic tools, such as building information electronic modelling tools or similar" for public works
contracts and design contests. Countries such as Italy, Spain, and the United Kingdom have developed detailed
national frameworks that distinguish between minimum technical qualification requirements and weighted award
criteria, providing instructive comparative models for Brazil’s evolving approach. For an overview, see: G. M. DI
GIUDA-G. M. RACCA, From Works Contracts to Collaborative Contracts: The Challenges of Building
Information Modeling (BIM) in Public Procurement (G. M. RACCA – C. R. YUKINS eds.), Joint Public Procurement
and Innovation: Lessons Across Borders, Bruxelles, Bruylant, 2019, pp. 223–271
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
4
empirical research carried out on a sample of 25 (twenty-five) tender notices involving BIM
engineering works or services will be presented.
This made it possible to observe the most commonly used bidding modalities and
evaluation criteria, as well as the main technical qualification requirements related to BIM,
dividing the analysis into technical-operational and technical-professional capacity. Finally,
we evaluated how technical capabilities were included in the Technical Note for evaluation
purposes in those notices whose criteria were Technical and Price.
Finally, it was possible to list the main conclusions observed, as well as to provide
guidance or suggestions to the Public Authorities regarding the reasonableness and limits of
the technical requirements related to BIM.
2. PUBLIC NOTICE AS A BINDING CALL FOR BIDS
According to the current concept, bidding is a slow, costly, and laborious
administrative process through which the Administration seeks, by means of the qualification
of bidders and objective evaluation of bids - based on equality and competitiveness - to select
the most advantageous bid among candidates who are able to enter into contracts, use public
assets, or become public service contractors, thus aiming to serve the public interest6.
Every bid therefore seeks, without fail, to select the most advantageous proposal for
the Administration. That is, the one that best satisfies the public interest. This means that, in
order to make an objective assessment of the proposals, the Administration must define the
angle from which this advantage will be evaluated, that is, it must establish in the call for
bids the criteria necessary for the object/product to achieve its purpose.
In addition, the principle of equality requires the Administration to set out, in the
call for bids, all the conditions under which it wishes to contract. It is also necessary to
6 A. SADDY, Curso de Direito Administrativo, vol. 1, CEEJ, Rio de Janeiro, 2023, p. 517.
______________________________________________________________________________
Copyleft – Ius Publicum
4
empirical research carried out on a sample of 25 (twenty-five) tender notices involving BIM
engineering works or services will be presented.
This made it possible to observe the most commonly used bidding modalities and
evaluation criteria, as well as the main technical qualification requirements related to BIM,
dividing the analysis into technical-operational and technical-professional capacity. Finally,
we evaluated how technical capabilities were included in the Technical Note for evaluation
purposes in those notices whose criteria were Technical and Price.
Finally, it was possible to list the main conclusions observed, as well as to provide
guidance or suggestions to the Public Authorities regarding the reasonableness and limits of
the technical requirements related to BIM.
2. PUBLIC NOTICE AS A BINDING CALL FOR BIDS
According to the current concept, bidding is a slow, costly, and laborious
administrative process through which the Administration seeks, by means of the qualification
of bidders and objective evaluation of bids - based on equality and competitiveness - to select
the most advantageous bid among candidates who are able to enter into contracts, use public
assets, or become public service contractors, thus aiming to serve the public interest6.
Every bid therefore seeks, without fail, to select the most advantageous proposal for
the Administration. That is, the one that best satisfies the public interest. This means that, in
order to make an objective assessment of the proposals, the Administration must define the
angle from which this advantage will be evaluated, that is, it must establish in the call for
bids the criteria necessary for the object/product to achieve its purpose.
In addition, the principle of equality requires the Administration to set out, in the
call for bids, all the conditions under which it wishes to contract. It is also necessary to
6 A. SADDY, Curso de Direito Administrativo, vol. 1, CEEJ, Rio de Janeiro, 2023, p. 517.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
5
provide a detailed description of the object of the bid, so that bidders can prepare their price
proposals with full and complete knowledge of the same (Article 38, caput, and Article 47
of Law No. 8.666/1993 and Articles 25 and 150 of Law No. 14.133/2021).
Therefore, this means that the quantity, quality, and efficiency of the object are
mandatory factors in the notice that will guide the contracting process. Thus, when preparing
the notice, the Administration must specify the technical specifications of what it wants.
Once the specifications are set out in the public notice, the principle of objective
judgment is bound by compliance with them (Article 42, paragraph 5, in fine of Law No.
8.666/1993 and Article 5 of Law No. 14.133/2021) and this is achieved by observing the
principle of binding nature of the call for bids, which translates into the rule that the notice is
binding between the parties and is the instrument that validates the acts performed in the
course of the bidding process. It can therefore be inferred that the call for bids is the internal
law of the bidding process, and its terms must be observed by the Administration and the
bidders until the end of the process, since they are binding on the parties (Articles 3 and 41
of Law No. 8.666/1993 and Articles 5 and 25 of Law No. 14.133/2021). This is a principle
that derives from legality, since the notice may only contain clauses that are in accordance
with the law.
Because the public notice is the internal law of the bidding process, through which
the intentions are expressed, the Administration, in relation to the bidders, cannot deviate
from the terms and conditions proposed therein, nor can it demand or decide beyond or below
the public notice, since it establishes the conditions under which bids must be prepared, and
it is therefore up to the Administration to judge them in strict accordance with those
conditions.
Since the notice constitutes the internal law of the tender, and the procedure to be
adopted constitutes the "rules of the game," it is understood that the call for bids is a pre-
contractual legal act that is binding and mandatory for the participants in the bidding process.
As such, it is subject to interpretation in accordance with the general principles and rules on
______________________________________________________________________________
Copyleft – Ius Publicum
5
provide a detailed description of the object of the bid, so that bidders can prepare their price
proposals with full and complete knowledge of the same (Article 38, caput, and Article 47
of Law No. 8.666/1993 and Articles 25 and 150 of Law No. 14.133/2021).
Therefore, this means that the quantity, quality, and efficiency of the object are
mandatory factors in the notice that will guide the contracting process. Thus, when preparing
the notice, the Administration must specify the technical specifications of what it wants.
Once the specifications are set out in the public notice, the principle of objective
judgment is bound by compliance with them (Article 42, paragraph 5, in fine of Law No.
8.666/1993 and Article 5 of Law No. 14.133/2021) and this is achieved by observing the
principle of binding nature of the call for bids, which translates into the rule that the notice is
binding between the parties and is the instrument that validates the acts performed in the
course of the bidding process. It can therefore be inferred that the call for bids is the internal
law of the bidding process, and its terms must be observed by the Administration and the
bidders until the end of the process, since they are binding on the parties (Articles 3 and 41
of Law No. 8.666/1993 and Articles 5 and 25 of Law No. 14.133/2021). This is a principle
that derives from legality, since the notice may only contain clauses that are in accordance
with the law.
Because the public notice is the internal law of the bidding process, through which
the intentions are expressed, the Administration, in relation to the bidders, cannot deviate
from the terms and conditions proposed therein, nor can it demand or decide beyond or below
the public notice, since it establishes the conditions under which bids must be prepared, and
it is therefore up to the Administration to judge them in strict accordance with those
conditions.
Since the notice constitutes the internal law of the tender, and the procedure to be
adopted constitutes the "rules of the game," it is understood that the call for bids is a pre-
contractual legal act that is binding and mandatory for the participants in the bidding process.
As such, it is subject to interpretation in accordance with the general principles and rules on
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
6
the matter. Therefore, the notice cannot establish requirements, especially technical ones, that
go against the principles of competitiveness, economy, and equality, among others.
As this article aims to analyze the limits of technical requirements in public notices
relating to Building Information Modeling (BIM), it is necessary to define the qualification
phase of bids, in which such requirements are normally addressed.
3. QUALIFICATION PHASE
During the qualification phase of the bidding process, the documents submitted by
bidders must be presented in accordance with the requirements of Articles 27 to 33 of Law
No. 8.666/1993 and Articles 62 to 70 of Law No. 14.133/2021.
The call for bids must contain the definition of the qualification requirements
according to the circumstances of each bid. The Administration, in view of the public
interests involved in the procedure in question, must define what interested parties need to
participate in the bid. In addition, the manner in which they must submit their documents and
proposals must be established. Only with these requirements can the formal and material
evaluation of the bid be carried out.
The qualification phase therefore aims to assess whether the person interested in
contracting with the Administration meets the requirements and qualifications for the proper
execution of the object of the bid, with the ultimate goal of ensuring the fulfillment of the
obligations established in the administrative contract. This phase is mandatory, and the public
agent must request documents according to the object of the bid, without imposing
unreasonable or disproportionate requirements (as a guarantee of the principle of equality).
It should be noted, however, that the Administration must require the minimum
possible from interested parties. In other words, it is not up to the Administration to go
beyond the minimum necessary to guarantee the public interest. This means that such
requirements are permissive, i.e., they are at the discretion of the Administration. It requires
what it deems necessary for the public interest in the specific case.
______________________________________________________________________________
Copyleft – Ius Publicum
6
the matter. Therefore, the notice cannot establish requirements, especially technical ones, that
go against the principles of competitiveness, economy, and equality, among others.
As this article aims to analyze the limits of technical requirements in public notices
relating to Building Information Modeling (BIM), it is necessary to define the qualification
phase of bids, in which such requirements are normally addressed.
3. QUALIFICATION PHASE
During the qualification phase of the bidding process, the documents submitted by
bidders must be presented in accordance with the requirements of Articles 27 to 33 of Law
No. 8.666/1993 and Articles 62 to 70 of Law No. 14.133/2021.
The call for bids must contain the definition of the qualification requirements
according to the circumstances of each bid. The Administration, in view of the public
interests involved in the procedure in question, must define what interested parties need to
participate in the bid. In addition, the manner in which they must submit their documents and
proposals must be established. Only with these requirements can the formal and material
evaluation of the bid be carried out.
The qualification phase therefore aims to assess whether the person interested in
contracting with the Administration meets the requirements and qualifications for the proper
execution of the object of the bid, with the ultimate goal of ensuring the fulfillment of the
obligations established in the administrative contract. This phase is mandatory, and the public
agent must request documents according to the object of the bid, without imposing
unreasonable or disproportionate requirements (as a guarantee of the principle of equality).
It should be noted, however, that the Administration must require the minimum
possible from interested parties. In other words, it is not up to the Administration to go
beyond the minimum necessary to guarantee the public interest. This means that such
requirements are permissive, i.e., they are at the discretion of the Administration. It requires
what it deems necessary for the public interest in the specific case.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
7
When the envelope containing the bidders’, documentation is opened, the
Administration is checking whether the qualification requirements set out in the notice have
been met. At this stage, the suitability of the bidders is assessed by examining the
documentation relating to their legal capacity, tax compliance, technical capacity, and
financial standing. For the purposes of this article, it is important to define the aspects relating
to technical qualification.
3.1. Qualification and technical capacity
Technical qualification is defined as the demonstration of the skills necessary to
perform the activity relevant to the subject matter of the bid and, where applicable, proof of
specialized technical knowledge and operational training to fulfill the subject matter of the
contract7. For this reason, the requirement for technical qualification must be proportional to
the subject matter of the contract, limiting its restriction, in accordance with the fundamental
principle of the rule of law of the Constitution (art. 37, item XXI), to the limits of
guaranteeing the fulfillment of obligations8. Therefore, the requirement of prior performance
of services with a quality superior to the object of the tender must be considered illegal9.
Confirmation of the technical qualification of the bidder, respecting the limits of
proportionality to the contractual object, is essential to ensure the proper execution of the
contract to be signed by the Public Administration, and is not a mere discretionary option of
the public manager10. If a specific contractor profile is required for the performance of the
contract, it is important to ensure that the future contract is properly executed, especially in
7 V. A. J. AMORIM, Licitações e contratos administrativos: teoria e jurisprudência, Senado Federal, Brasília, 2017,
p. 93.
8 R. C. L. TORRES, Lei de Licitações Públicas Comentadas, 3rd ed, Salvador, Juspodivm, 2010.
9 J. C. OLIVEIRA, Tipos de Licitação, cit.
10 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, cit., p. 312.
______________________________________________________________________________
Copyleft – Ius Publicum
7
When the envelope containing the bidders’, documentation is opened, the
Administration is checking whether the qualification requirements set out in the notice have
been met. At this stage, the suitability of the bidders is assessed by examining the
documentation relating to their legal capacity, tax compliance, technical capacity, and
financial standing. For the purposes of this article, it is important to define the aspects relating
to technical qualification.
3.1. Qualification and technical capacity
Technical qualification is defined as the demonstration of the skills necessary to
perform the activity relevant to the subject matter of the bid and, where applicable, proof of
specialized technical knowledge and operational training to fulfill the subject matter of the
contract7. For this reason, the requirement for technical qualification must be proportional to
the subject matter of the contract, limiting its restriction, in accordance with the fundamental
principle of the rule of law of the Constitution (art. 37, item XXI), to the limits of
guaranteeing the fulfillment of obligations8. Therefore, the requirement of prior performance
of services with a quality superior to the object of the tender must be considered illegal9.
Confirmation of the technical qualification of the bidder, respecting the limits of
proportionality to the contractual object, is essential to ensure the proper execution of the
contract to be signed by the Public Administration, and is not a mere discretionary option of
the public manager10. If a specific contractor profile is required for the performance of the
contract, it is important to ensure that the future contract is properly executed, especially in
7 V. A. J. AMORIM, Licitações e contratos administrativos: teoria e jurisprudência, Senado Federal, Brasília, 2017,
p. 93.
8 R. C. L. TORRES, Lei de Licitações Públicas Comentadas, 3rd ed, Salvador, Juspodivm, 2010.
9 J. C. OLIVEIRA, Tipos de Licitação, cit.
10 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, cit., p. 312.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
8
view of the duty of equality, which implies the duty to provide everyone with the opportunity
to contract with the Public Administration11.
José Calasans Jr. explains that technical qualification covers three aspects12: (i) legal
qualification to perform the professional activity corresponding to the work or supply to be
performed (generic capacity); (ii) aptitude to perform the activity related to the work, service,
or supply sought in the tender (specific capacity); and (iii) availability of personnel, tools,
and equipment adequate to properly perform the contract (operational capacity). Regarding
each of these, the author explains:
O primeiro aspecto (habilitação legal) deve ser demonstrado com a prova de estar
o licitante devidamente inscrito ou registrado no órgão fiscalizador da respectiva atividade
profissional. Assim, se alguém pretende habilitar-se a uma licitação que objetiva a execução
de uma obra de engenharia (um prédio, por exemplo), deve provar que é legalmente
habilitado para realizar esse tipo de trabalho [...].
O segundo aspecto (aptidão para o desempenho da atividade) o interessado deverá
demonstrar com a prova de que: (a) dispõe de equipe legalmente habilitada e tecnicamente
qualificada e de equipamentos, maquinário e ferramental adequados para executar os
trabalhos objetivados na licitação; (b) possui experiência na realização de trabalhos da mesma
natureza ou similares. Esses dois elementos representam a qualificação técnico-profissional,
que, no caso das pessoas jurídicas (empresas), resulta da qualificação dos integrantes de suas
equipes técnicas.
O terceiro elemento da qualificação técnica consiste na prova da disponibilidade de
pessoal, ferramental, maquinário e equipamentos adequados para bem executar os trabalhos
11 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, p. 311.
12 J. CALASANS JR., Manual da Licitação: com base na Lei nº 14.133, de 1º de abril de 2021, Barueri, Atlas, 2021.
______________________________________________________________________________
Copyleft – Ius Publicum
8
view of the duty of equality, which implies the duty to provide everyone with the opportunity
to contract with the Public Administration11.
José Calasans Jr. explains that technical qualification covers three aspects12: (i) legal
qualification to perform the professional activity corresponding to the work or supply to be
performed (generic capacity); (ii) aptitude to perform the activity related to the work, service,
or supply sought in the tender (specific capacity); and (iii) availability of personnel, tools,
and equipment adequate to properly perform the contract (operational capacity). Regarding
each of these, the author explains:
O primeiro aspecto (habilitação legal) deve ser demonstrado com a prova de estar
o licitante devidamente inscrito ou registrado no órgão fiscalizador da respectiva atividade
profissional. Assim, se alguém pretende habilitar-se a uma licitação que objetiva a execução
de uma obra de engenharia (um prédio, por exemplo), deve provar que é legalmente
habilitado para realizar esse tipo de trabalho [...].
O segundo aspecto (aptidão para o desempenho da atividade) o interessado deverá
demonstrar com a prova de que: (a) dispõe de equipe legalmente habilitada e tecnicamente
qualificada e de equipamentos, maquinário e ferramental adequados para executar os
trabalhos objetivados na licitação; (b) possui experiência na realização de trabalhos da mesma
natureza ou similares. Esses dois elementos representam a qualificação técnico-profissional,
que, no caso das pessoas jurídicas (empresas), resulta da qualificação dos integrantes de suas
equipes técnicas.
O terceiro elemento da qualificação técnica consiste na prova da disponibilidade de
pessoal, ferramental, maquinário e equipamentos adequados para bem executar os trabalhos
11 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, p. 311.
12 J. CALASANS JR., Manual da Licitação: com base na Lei nº 14.133, de 1º de abril de 2021, Barueri, Atlas, 2021.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
9
licitados. Quem não dispõe desses recursos não pode ser considerado tecnicamente
qualificado e em condições de ser contratado. Falta-lhe a qualificação técnico-operacional13.
Before the advent of Law No. 14.133/2021, Law No. 8.666/1993 prohibited (Article
30, paragraph 6, of the Law) the requirement of proof of ownership and prior location of such
assets, although it subjected the bidder to penalties if they declared availability that they did
not subsequently prove at the right time of their use14. However, this exposed the
Administration to the risk of, relying on the bidder's declaration, entering into a contract that
could not be performed.
Still on the division presented by José Calasans Jr., we note its similarity to that
made by other authors, such as Rafael Carvalho Rezende de Oliveira15, who, however,
divides generic, specific, and operational capacities as aspects belonging specifically to
technical capacity:
A capacidade técnica é dividida em três espécies: (i) genérica: prova de inscrição
no Conselho Profissional ou órgão de classe (ex.: se o objeto do contrato for a execução de
uma obra, a empresa deve comprovar a sua inscrição junto ao CREA); (ii) específica:
demonstração de que o licitante já executou objeto assemelhado (art. 30, § 1.º, da Lei); (iii)
operativa: comprovação de que o licitante possui mão de obra e equipamentos disponíveis
para execução do futuro contrato.
This stems from the fact that technical qualification is a genus of which technical
capacity is a species. Therefore, there may be a preference for distributing generic, specific,
13 J. CALASANS JR., Manual da Licitação: com base na Lei nº 14.133, de 1º de abril de 2021, cit.
14 Ibidem.
15 R. C. R. OLIVEIRA, Licitações e Contratos Administrativos: teoria e prática. 9. ed. Rio de Janeiro: Forense, São
Paulo, Método, 2020.
______________________________________________________________________________
Copyleft – Ius Publicum
9
licitados. Quem não dispõe desses recursos não pode ser considerado tecnicamente
qualificado e em condições de ser contratado. Falta-lhe a qualificação técnico-operacional13.
Before the advent of Law No. 14.133/2021, Law No. 8.666/1993 prohibited (Article
30, paragraph 6, of the Law) the requirement of proof of ownership and prior location of such
assets, although it subjected the bidder to penalties if they declared availability that they did
not subsequently prove at the right time of their use14. However, this exposed the
Administration to the risk of, relying on the bidder's declaration, entering into a contract that
could not be performed.
Still on the division presented by José Calasans Jr., we note its similarity to that
made by other authors, such as Rafael Carvalho Rezende de Oliveira15, who, however,
divides generic, specific, and operational capacities as aspects belonging specifically to
technical capacity:
A capacidade técnica é dividida em três espécies: (i) genérica: prova de inscrição
no Conselho Profissional ou órgão de classe (ex.: se o objeto do contrato for a execução de
uma obra, a empresa deve comprovar a sua inscrição junto ao CREA); (ii) específica:
demonstração de que o licitante já executou objeto assemelhado (art. 30, § 1.º, da Lei); (iii)
operativa: comprovação de que o licitante possui mão de obra e equipamentos disponíveis
para execução do futuro contrato.
This stems from the fact that technical qualification is a genus of which technical
capacity is a species. Therefore, there may be a preference for distributing generic, specific,
13 J. CALASANS JR., Manual da Licitação: com base na Lei nº 14.133, de 1º de abril de 2021, cit.
14 Ibidem.
15 R. C. R. OLIVEIRA, Licitações e Contratos Administrativos: teoria e prática. 9. ed. Rio de Janeiro: Forense, São
Paulo, Método, 2020.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
10
and operational capacities as aspects of technical qualification or arranging them as aspects
of technical capacity.
In both options, the demonstration of a company's specific technical capacity
(aptitude for performance) is made through the presentation of a Technical Capacity
Certificate. According to Judgment No. 3418/201816, such a Certificate is a document issued
by a legal entity governed by public or private law to prove the performance of certain
activities. Based on this document, the contractor must certify that the bidder has previously
provided a specific good, service, or work with the desired characteristics.
Based on this certificate, it is possible to prove the technical aptitude (specific
technical capacity) of a company in two dimensions: (i) technical-operational capacity:
aptitude of the bidder itself (legal entity), covering facilities, equipment, work
methodologies, and internal quality control processes; and (ii) technical-professional
capacity: aptitude of the professionals (individuals) employed by the bidder17.
In other words, the issuance of a Technical Capacity Certificate may: (i) prove the
technical and operational capacity of the company, when issued on behalf of the bidding
company; (ii) prove the technical and professional capacity of the bidder, when issued in
favor of another company, but in favor of the activities provided by a professional who is
part of the bidder's technical staff. It should be noted that in the second case, the certificate
may be accompanied by a Technical Collection Certificate (CAT), issued by the competent
body, since this type of certificate is not currently issued in the name of a legal entity18.
16 Federal Court of Accounts. Judgment 3418/2014, Plenary Session, Reporting Judge: Marcos Bemquerer, Session:
December 3, 2014.
17 V. A. J. AMORIM, Licitações e contratos administrativos: teoria e jurisprudência, Senado Federal, Brasília,
2017, p. 94.
18 CONFEA. Conselho Federal de Engenharia e Agronomia. Resolution No. 1137 of March 31, 2023. Provides for
the Technical Responsibility Note (ART), the Technical-Professional Collection, and the Operational Collection,
and makes other provisions.
______________________________________________________________________________
Copyleft – Ius Publicum
10
and operational capacities as aspects of technical qualification or arranging them as aspects
of technical capacity.
In both options, the demonstration of a company's specific technical capacity
(aptitude for performance) is made through the presentation of a Technical Capacity
Certificate. According to Judgment No. 3418/201816, such a Certificate is a document issued
by a legal entity governed by public or private law to prove the performance of certain
activities. Based on this document, the contractor must certify that the bidder has previously
provided a specific good, service, or work with the desired characteristics.
Based on this certificate, it is possible to prove the technical aptitude (specific
technical capacity) of a company in two dimensions: (i) technical-operational capacity:
aptitude of the bidder itself (legal entity), covering facilities, equipment, work
methodologies, and internal quality control processes; and (ii) technical-professional
capacity: aptitude of the professionals (individuals) employed by the bidder17.
In other words, the issuance of a Technical Capacity Certificate may: (i) prove the
technical and operational capacity of the company, when issued on behalf of the bidding
company; (ii) prove the technical and professional capacity of the bidder, when issued in
favor of another company, but in favor of the activities provided by a professional who is
part of the bidder's technical staff. It should be noted that in the second case, the certificate
may be accompanied by a Technical Collection Certificate (CAT), issued by the competent
body, since this type of certificate is not currently issued in the name of a legal entity18.
16 Federal Court of Accounts. Judgment 3418/2014, Plenary Session, Reporting Judge: Marcos Bemquerer, Session:
December 3, 2014.
17 V. A. J. AMORIM, Licitações e contratos administrativos: teoria e jurisprudência, Senado Federal, Brasília,
2017, p. 94.
18 CONFEA. Conselho Federal de Engenharia e Agronomia. Resolution No. 1137 of March 31, 2023. Provides for
the Technical Responsibility Note (ART), the Technical-Professional Collection, and the Operational Collection,
and makes other provisions.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
11
The existence of these two dimensions is corroborated by the understanding of the
Federal Court of Auditors, according to which:
A qualificação técnica abrange tanto a experiência empresarial quanto a
experiência dos profissionais que irão executar o serviço. A primeira seria a capacidade
técnico-operacional, abrangendo atributos próprios da empresa, desenvolvidos a partir do
desempenho da atividade empresarial com a conjugação de diferentes fatores econômicos e
de uma pluralidade de pessoas. A segunda é denominada capacidade técnico-profissional,
referindo-se a existência de profissionais com acervo técnico compatível com a obra ou
serviço de engenharia a ser licitado19. [...]
Also other experiences in foreign countries demonstrate that BIM-specific
qualifications require particular caution precisely because market maturity varies
significantly. For instance, in the Euorpean legal framework, while the United Kingdom
reports 73% BIM adoption among construction firms, countries like Poland show only 43%
adoption, creating challenges analogous to Brazil’s maturity20. European procurement
authorities have responded by implementing graduated qualification frameworks that
distinguish between mandatory minimum requirements and weighted evaluation criteria that
reward superior capabilities without excluding less experienced bidders21.
19 Federal Court of Accounts. Judgment 1332/2006, Plenary Session, Reporting Judge: Walton Alencar Rodrigues,
Judgment: August 2, 2006.
20 See: European Innovation Council and SMEs Executive Agency (EISMEA) Unit i.02.02, EU Commission, An
analysis for the adoption of Building Information Modelling (BIM) across the EU27 for Public Sector, June 2024,
p. 171.
21 D. MOSEY, The BIM Management Handbook, London, 2019, NEC4 FAC-1 Guidance Notes, pp. 45-62,
analyzing graduated qualification approaches under ISO 19650 framework; P.E. GIANA-R. VORNICU, The use
of FAC-1 as a contractual integrator enhancing the use of BIM: a focus on the Liscate school in Italy, in Revista
Derecho & Sociedad, N° 55, 2017, pp. 113-123, examining contractual mechanisms for managing BIM capabilities
at different maturity levels.
______________________________________________________________________________
Copyleft – Ius Publicum
11
The existence of these two dimensions is corroborated by the understanding of the
Federal Court of Auditors, according to which:
A qualificação técnica abrange tanto a experiência empresarial quanto a
experiência dos profissionais que irão executar o serviço. A primeira seria a capacidade
técnico-operacional, abrangendo atributos próprios da empresa, desenvolvidos a partir do
desempenho da atividade empresarial com a conjugação de diferentes fatores econômicos e
de uma pluralidade de pessoas. A segunda é denominada capacidade técnico-profissional,
referindo-se a existência de profissionais com acervo técnico compatível com a obra ou
serviço de engenharia a ser licitado19. [...]
Also other experiences in foreign countries demonstrate that BIM-specific
qualifications require particular caution precisely because market maturity varies
significantly. For instance, in the Euorpean legal framework, while the United Kingdom
reports 73% BIM adoption among construction firms, countries like Poland show only 43%
adoption, creating challenges analogous to Brazil’s maturity20. European procurement
authorities have responded by implementing graduated qualification frameworks that
distinguish between mandatory minimum requirements and weighted evaluation criteria that
reward superior capabilities without excluding less experienced bidders21.
19 Federal Court of Accounts. Judgment 1332/2006, Plenary Session, Reporting Judge: Walton Alencar Rodrigues,
Judgment: August 2, 2006.
20 See: European Innovation Council and SMEs Executive Agency (EISMEA) Unit i.02.02, EU Commission, An
analysis for the adoption of Building Information Modelling (BIM) across the EU27 for Public Sector, June 2024,
p. 171.
21 D. MOSEY, The BIM Management Handbook, London, 2019, NEC4 FAC-1 Guidance Notes, pp. 45-62,
analyzing graduated qualification approaches under ISO 19650 framework; P.E. GIANA-R. VORNICU, The use
of FAC-1 as a contractual integrator enhancing the use of BIM: a focus on the Liscate school in Italy, in Revista
Derecho & Sociedad, N° 55, 2017, pp. 113-123, examining contractual mechanisms for managing BIM capabilities
at different maturity levels.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
12
In public works, one of the Administration's primary concerns is whether bidders
have a technical staff with sufficient qualifications to carry out the work (technical and
professional capacity), which can be verified by evaluating the available professionals22.
However, Carlos Ari Sundfeld points out that "a simples reunião caótica de
profissionais, mesmo altamente especializados, não oferece garantia de que a empresa seja
capaz de operar eficientemente, pois nada diz quanto a sua estrutura administrativa, seus
métodos organizacionais, seus processos internos de controle de qualidade, ao entrosamento
da equipe, etc."
Therefore, there is another essential piece of knowledge for management regarding
bidders: they are not just qualified individuals, but a set of qualities that enable them to
operate effectively. This is technical and operational capacity, to be verified by the company's
previous performance23. The author further elucidates the application of technical and
operational capacity with teachings from Geraldo Ataliba24 on the importance of this aspect
in public works contractors, which is transcribed below:
A realização de obras públicas, atualmente, requer não só a técnica e a arte –
peculiares ao exercício da engenharia – mas também um suporte empresarial compatível com
as sofisticadas exigências do mundo moderno. Não basta, portanto, um quadro de
profissionais para a realização de uma obra de engenharia. Há necessidade de que o
trabalho – na forma do estilo exigidos pelas organizações modernas – seja cooperativo. Isto
quer dizer que se haverão de combinar os trabalhos de diversos profissionais, variadas
áreas, para, somados, produzirem o resultado final da obra e, no nosso caso, obras públicas.
22 C. A. SUNDFELD, A Habilitação nas Licitações e os Atestados de Capacidade Técnica, Revista da Faculdade
de Direito de São Bernardo do Campo, São Bernardo do Campo, v. 4, p. 27-44, 1998.
23 Ibidem.
24 G. ATALIBA, Bidding: Collection or Technical and Engineering Knowledge, Public Law Magazine São Paulo,
v. 8, no. 41/42, Jan./June, 1977, p. 127.
______________________________________________________________________________
Copyleft – Ius Publicum
12
In public works, one of the Administration's primary concerns is whether bidders
have a technical staff with sufficient qualifications to carry out the work (technical and
professional capacity), which can be verified by evaluating the available professionals22.
However, Carlos Ari Sundfeld points out that "a simples reunião caótica de
profissionais, mesmo altamente especializados, não oferece garantia de que a empresa seja
capaz de operar eficientemente, pois nada diz quanto a sua estrutura administrativa, seus
métodos organizacionais, seus processos internos de controle de qualidade, ao entrosamento
da equipe, etc."
Therefore, there is another essential piece of knowledge for management regarding
bidders: they are not just qualified individuals, but a set of qualities that enable them to
operate effectively. This is technical and operational capacity, to be verified by the company's
previous performance23. The author further elucidates the application of technical and
operational capacity with teachings from Geraldo Ataliba24 on the importance of this aspect
in public works contractors, which is transcribed below:
A realização de obras públicas, atualmente, requer não só a técnica e a arte –
peculiares ao exercício da engenharia – mas também um suporte empresarial compatível com
as sofisticadas exigências do mundo moderno. Não basta, portanto, um quadro de
profissionais para a realização de uma obra de engenharia. Há necessidade de que o
trabalho – na forma do estilo exigidos pelas organizações modernas – seja cooperativo. Isto
quer dizer que se haverão de combinar os trabalhos de diversos profissionais, variadas
áreas, para, somados, produzirem o resultado final da obra e, no nosso caso, obras públicas.
22 C. A. SUNDFELD, A Habilitação nas Licitações e os Atestados de Capacidade Técnica, Revista da Faculdade
de Direito de São Bernardo do Campo, São Bernardo do Campo, v. 4, p. 27-44, 1998.
23 Ibidem.
24 G. ATALIBA, Bidding: Collection or Technical and Engineering Knowledge, Public Law Magazine São Paulo,
v. 8, no. 41/42, Jan./June, 1977, p. 127.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
13
[...].
Não basta um excelente corpo técnico – com habilitação profissional aprimorada – para o
bom sucesso de uma empresa de engenharia. É preciso que ela disponha de toda
infraestrutura e de todos os elementos que podem torná-la competitiva no seu campo, à
semelhança de todo e qualquer outro tipo de empresa, dos demais setores da atividade
econômica.
This means that the verification of technical and professional capacity and technical
and operational capacity as technical aptitude requirements is not limited to an isolated
examination of these aspects, as it is the synergistic analysis that provides the best guarantee
that companies are technically capable of performing the necessary activities.
It is important to note that technical requirements also serve as criteria for judgment
in the bidding process: best technique or artistic and technical content and price (Article 6,
item XXXVIII, subitems "b" and "c," Law No. 14.133/2021).
Bidding based on the best technical proposal will be preferred when the public
interest can only be satisfied by an object with specific characteristics that are not found in
most of the common services available. As a result, the notice must present the technical
qualification requirements to be examined in the qualification stage, and the technical details
specifically related to the object being bid on - since it is necessary to understand exactly
what the Administration expects from the object and also because, if the specific
characteristics of the object or product sought change, the technical requirements will also
change - which will then be verified in the evaluation of the bids.
In the evaluation based on technical merit and price, the aforementioned technical
issues are combined with the value of the bid. The technical and price aspects will be
considered in accordance with proportions previously established in the notice. The Public
Administration must establish objective scoring factors for the evaluation based on technical
merit and price, in accordance with the principle of objective evaluation. The score will be
obtained from the weighting of the scores assigned to each of the two criteria, with the
technical proposal being evaluated first, which may represent up to 70% of the score. In
______________________________________________________________________________
Copyleft – Ius Publicum
13
[...].
Não basta um excelente corpo técnico – com habilitação profissional aprimorada – para o
bom sucesso de uma empresa de engenharia. É preciso que ela disponha de toda
infraestrutura e de todos os elementos que podem torná-la competitiva no seu campo, à
semelhança de todo e qualquer outro tipo de empresa, dos demais setores da atividade
econômica.
This means that the verification of technical and professional capacity and technical
and operational capacity as technical aptitude requirements is not limited to an isolated
examination of these aspects, as it is the synergistic analysis that provides the best guarantee
that companies are technically capable of performing the necessary activities.
It is important to note that technical requirements also serve as criteria for judgment
in the bidding process: best technique or artistic and technical content and price (Article 6,
item XXXVIII, subitems "b" and "c," Law No. 14.133/2021).
Bidding based on the best technical proposal will be preferred when the public
interest can only be satisfied by an object with specific characteristics that are not found in
most of the common services available. As a result, the notice must present the technical
qualification requirements to be examined in the qualification stage, and the technical details
specifically related to the object being bid on - since it is necessary to understand exactly
what the Administration expects from the object and also because, if the specific
characteristics of the object or product sought change, the technical requirements will also
change - which will then be verified in the evaluation of the bids.
In the evaluation based on technical merit and price, the aforementioned technical
issues are combined with the value of the bid. The technical and price aspects will be
considered in accordance with proportions previously established in the notice. The Public
Administration must establish objective scoring factors for the evaluation based on technical
merit and price, in accordance with the principle of objective evaluation. The score will be
obtained from the weighting of the scores assigned to each of the two criteria, with the
technical proposal being evaluated first, which may represent up to 70% of the score. In
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
14
addition, proof of good performance in previous contracts with the Public Administration
should also be considered in the technical proposal25.
Article 37 of Law No. 14.133/2021 explains the procedure for judging the best
technique, which also applies to the criteria for judging technique and price. Items I, II, and
III of the provision detail that the decision must be made by:
I - verificação da capacitação e da experiência do licitante, comprovadas por meio
da apresentação de atestados de obras, produtos ou serviços previamente realizados;
II - atribuição de notas a quesitos de natureza qualitativa por banca designada para
esse fim, de acordo com orientações e limites definidos em edital, considerados a
demonstração de conhecimento do objeto, a metodologia e o programa de trabalho, a
qualificação das equipes técnicas e a relação dos produtos que serão entregues;
III - atribuição de notas por desempenho do licitante em contratações anteriores
aferida nos documentos comprobatórios de que trata o § 3º do art. 88 desta Lei e em registro
cadastral unificado disponível no Portal Nacional de Contratações Públicas (PNCP).
Thus, in these evaluation methods, the public official in charge of the tender must
verify a series of characteristics of the proposals to certify the bidder's actual capacity and
experience, through the presentation of technical certificates26. The individual's performance
history in previous administrative contracts also carries extra weight, as it is also a factor in
awarding points in technical and price evaluations and a general tiebreaker between bidders27.
25 J. M. NIEBUHR, Nova Lei de Licitações e Contratos Administrativos, cit., p. 140.
26 J. M. NIEBUHR, Nova Lei de Licitações e Contratos Administrativos, e-book, 2. ed. Florianópolis, Zênite, 2021,
p. 83.
27 Ibidem.
______________________________________________________________________________
Copyleft – Ius Publicum
14
addition, proof of good performance in previous contracts with the Public Administration
should also be considered in the technical proposal25.
Article 37 of Law No. 14.133/2021 explains the procedure for judging the best
technique, which also applies to the criteria for judging technique and price. Items I, II, and
III of the provision detail that the decision must be made by:
I - verificação da capacitação e da experiência do licitante, comprovadas por meio
da apresentação de atestados de obras, produtos ou serviços previamente realizados;
II - atribuição de notas a quesitos de natureza qualitativa por banca designada para
esse fim, de acordo com orientações e limites definidos em edital, considerados a
demonstração de conhecimento do objeto, a metodologia e o programa de trabalho, a
qualificação das equipes técnicas e a relação dos produtos que serão entregues;
III - atribuição de notas por desempenho do licitante em contratações anteriores
aferida nos documentos comprobatórios de que trata o § 3º do art. 88 desta Lei e em registro
cadastral unificado disponível no Portal Nacional de Contratações Públicas (PNCP).
Thus, in these evaluation methods, the public official in charge of the tender must
verify a series of characteristics of the proposals to certify the bidder's actual capacity and
experience, through the presentation of technical certificates26. The individual's performance
history in previous administrative contracts also carries extra weight, as it is also a factor in
awarding points in technical and price evaluations and a general tiebreaker between bidders27.
25 J. M. NIEBUHR, Nova Lei de Licitações e Contratos Administrativos, cit., p. 140.
26 J. M. NIEBUHR, Nova Lei de Licitações e Contratos Administrativos, e-book, 2. ed. Florianópolis, Zênite, 2021,
p. 83.
27 Ibidem.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
15
Nevertheless, there are limits on technical qualification/capacity requirements. This
is because the way in which these stages are conducted is crucial to the continuity of
competition, so that excessive technical qualification/capacity requirements may unduly
broaden competition, which may not meet the intended objectives of expediency and quality,
while excessive technical qualification/capacity requirements may lead to the targeting and
restriction of competition, which also subverts the purpose of the bidding procedure.
The Federal Court of Auditors has already ruled on the indispensability of
qualification requirements for bidders:
Para fins de habilitação técnico-operacional em certames visando à contratação de
obras e serviços de engenharia, devem ser exigidos atestados emitidos em nome da licitante,
podendo ser solicitadas as certidões de acervo técnico (CAT) ou anotações/registros de
responsabilidade técnica (ART/RRT) emitidas pelo conselho de fiscalização profissional
competente em nome dos profissionais vinculados aos referidos atestados, como forma de
conferir autenticidade e veracidade às informações constantes nos documentos emitidos em
nome das licitantes28.
7. A Administração tem o dever de se proteger de interessados não capacitados a
prestar o serviço ou realizar a obra objeto da licitação. Por isso, a Lei de Licitações e
Contratos prevê a fase de habilitação, na qual os interessados devem comprovar os requisitos
exigidos no edital. Nela, a Administração deve impedir a participação daqueles sem
condições de cumprir o objeto29”.
28 Federal Court of Accounts, Judgment 2326/2011, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
October, 02, 2019.
29 Federal Court of Accounts, Judgment 410/2016, Plenary Session, Reporting Judge: Min. Marcos Vilaça,
Judgment: Mars, 29, 2006.
______________________________________________________________________________
Copyleft – Ius Publicum
15
Nevertheless, there are limits on technical qualification/capacity requirements. This
is because the way in which these stages are conducted is crucial to the continuity of
competition, so that excessive technical qualification/capacity requirements may unduly
broaden competition, which may not meet the intended objectives of expediency and quality,
while excessive technical qualification/capacity requirements may lead to the targeting and
restriction of competition, which also subverts the purpose of the bidding procedure.
The Federal Court of Auditors has already ruled on the indispensability of
qualification requirements for bidders:
Para fins de habilitação técnico-operacional em certames visando à contratação de
obras e serviços de engenharia, devem ser exigidos atestados emitidos em nome da licitante,
podendo ser solicitadas as certidões de acervo técnico (CAT) ou anotações/registros de
responsabilidade técnica (ART/RRT) emitidas pelo conselho de fiscalização profissional
competente em nome dos profissionais vinculados aos referidos atestados, como forma de
conferir autenticidade e veracidade às informações constantes nos documentos emitidos em
nome das licitantes28.
7. A Administração tem o dever de se proteger de interessados não capacitados a
prestar o serviço ou realizar a obra objeto da licitação. Por isso, a Lei de Licitações e
Contratos prevê a fase de habilitação, na qual os interessados devem comprovar os requisitos
exigidos no edital. Nela, a Administração deve impedir a participação daqueles sem
condições de cumprir o objeto29”.
28 Federal Court of Accounts, Judgment 2326/2011, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
October, 02, 2019.
29 Federal Court of Accounts, Judgment 410/2016, Plenary Session, Reporting Judge: Min. Marcos Vilaça,
Judgment: Mars, 29, 2006.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
16
Even so, the Court also imposes limits on the demand for such technical
requirements:
Caracteriza restrição à competitividade da licitação a exigência, como critério de
habilitação, de atestado de qualificação técnica comprovando experiência em tipologia
específica de obra, salvo se imprescindível à certeza da boa execução do objeto e desde que
devidamente fundamentada no processo licitatório30.
A inserção de cláusulas atinentes à qualificação técnica que vedem ou restrinjam a
apresentação de atestados técnicos relativos a determinadas tipologias de obras ou serviços
de engenharia contraria o art. 3º, § 1º, inciso I, da Lei 8.666/1993 e o art. 37, inciso XXI, da
Constituição Federal31.
No caso de se exigir atestados relativos a serviços específicos da obra, a instituição
contratante deve se certificar de que se trata de encargo materialmente relevante, com
particularidade técnica ou executiva que o torne distinto do usualmente existente em outras
obras de mesmo porte e tipologia32.
A exigência de comprovação de capacidade técnica para a execução de parcelas de
obra, para fins de qualificação técnica de licitante, que não atendem, simultaneamente, aos
critérios de maior relevância e valor significativo do objeto, contraria o disposto na Súmula-
TCU 26333.
30 Federal Court of Accounts, Judgment 134/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
February, 02, 2017.
31 Federal Court of Accounts, Judgment 1226/2012, Plenary Session, Reporting Judge: Valmir Campelo, Judgment:
May, 23, 2012.
32 Federal Court of Accounts, Judgment 2760/2012, Plenary Session, Reporting Judge: Ana Arraes, Judgment:
October, 10, 2012.
33 Federal Court of Accounts, Judgment 3148/2014, Plenary Session, Reporting Judge: Ana Arraes, Judgment:
November, 12, 2014.
______________________________________________________________________________
Copyleft – Ius Publicum
16
Even so, the Court also imposes limits on the demand for such technical
requirements:
Caracteriza restrição à competitividade da licitação a exigência, como critério de
habilitação, de atestado de qualificação técnica comprovando experiência em tipologia
específica de obra, salvo se imprescindível à certeza da boa execução do objeto e desde que
devidamente fundamentada no processo licitatório30.
A inserção de cláusulas atinentes à qualificação técnica que vedem ou restrinjam a
apresentação de atestados técnicos relativos a determinadas tipologias de obras ou serviços
de engenharia contraria o art. 3º, § 1º, inciso I, da Lei 8.666/1993 e o art. 37, inciso XXI, da
Constituição Federal31.
No caso de se exigir atestados relativos a serviços específicos da obra, a instituição
contratante deve se certificar de que se trata de encargo materialmente relevante, com
particularidade técnica ou executiva que o torne distinto do usualmente existente em outras
obras de mesmo porte e tipologia32.
A exigência de comprovação de capacidade técnica para a execução de parcelas de
obra, para fins de qualificação técnica de licitante, que não atendem, simultaneamente, aos
critérios de maior relevância e valor significativo do objeto, contraria o disposto na Súmula-
TCU 26333.
30 Federal Court of Accounts, Judgment 134/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
February, 02, 2017.
31 Federal Court of Accounts, Judgment 1226/2012, Plenary Session, Reporting Judge: Valmir Campelo, Judgment:
May, 23, 2012.
32 Federal Court of Accounts, Judgment 2760/2012, Plenary Session, Reporting Judge: Ana Arraes, Judgment:
October, 10, 2012.
33 Federal Court of Accounts, Judgment 3148/2014, Plenary Session, Reporting Judge: Ana Arraes, Judgment:
November, 12, 2014.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
17
As José Carlos De Oliveira34 points out, although it is normal that the quality of the
service sought by the Administration leads to a decrease in the number of interested bidders,
so that the bids offered can satisfy the state's needs, technical specialty criteria cannot result
in the impossibility of competition, otherwise, we would be faced with a situation of
unenforceability of bidding, as provided for in Article 25 of Law No. 8.666/93 (Article 74 of
Law No. 14.133/2021).
When technical qualifications are required for evaluation based on technical merit
or technical merit and price, the bidding notice must establish the evaluation criteria the
technical requirements that bidders must meet, which must be appropriate and compatible
with the intended object, in addition to assigning the respective scores, taking care not to
unjustifiably impair competitiveness35.
Technical qualification/capacity requirements, therefore, must be verified and
justified, always to the extent necessary (principle of proportionality), being more or less
comprehensive depending on the object to be contracted36. For this reason, this caution must
be even more prominent when it comes, for example, to contracts for engineering works and
services, whose contractual object has specific characteristics that distinguish it from other
types of contracts, as will be better explained below.
3.1.1. Qualification and technical capacity in engineering works and
services
In Public Administration, when considering contracts for engineering works and
services, the technical qualification of the company that wins the bid is essential for the
34 J. C. OLIVEIRA, Tipos de Licitação, Unesp. available at this link.
35 Ibidem.
36 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, cit., p. 312.
______________________________________________________________________________
Copyleft – Ius Publicum
17
As José Carlos De Oliveira34 points out, although it is normal that the quality of the
service sought by the Administration leads to a decrease in the number of interested bidders,
so that the bids offered can satisfy the state's needs, technical specialty criteria cannot result
in the impossibility of competition, otherwise, we would be faced with a situation of
unenforceability of bidding, as provided for in Article 25 of Law No. 8.666/93 (Article 74 of
Law No. 14.133/2021).
When technical qualifications are required for evaluation based on technical merit
or technical merit and price, the bidding notice must establish the evaluation criteria the
technical requirements that bidders must meet, which must be appropriate and compatible
with the intended object, in addition to assigning the respective scores, taking care not to
unjustifiably impair competitiveness35.
Technical qualification/capacity requirements, therefore, must be verified and
justified, always to the extent necessary (principle of proportionality), being more or less
comprehensive depending on the object to be contracted36. For this reason, this caution must
be even more prominent when it comes, for example, to contracts for engineering works and
services, whose contractual object has specific characteristics that distinguish it from other
types of contracts, as will be better explained below.
3.1.1. Qualification and technical capacity in engineering works and
services
In Public Administration, when considering contracts for engineering works and
services, the technical qualification of the company that wins the bid is essential for the
34 J. C. OLIVEIRA, Tipos de Licitação, Unesp. available at this link.
35 Ibidem.
36 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, cit., p. 312.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
18
success of the future execution. This is why this type of contract often leads to a series of
setbacks, in which the Administration, when publishing the tender notice, receives numerous
requests for clarification and challenges related to the subject37.
Although less expensive contracting is desirable and, whenever possible, should be
pursued by the government, the lowest price is not always synonymous with the most
advantageous proposal. In the case of engineering works and services, a given company may
offer the lowest price for the execution of a project, but if it does not have sufficient technical
capacity to execute the project, it may cause enormous losses to the contractor, such as failure
to meet deadlines or scope, poor quality of services provided, and even abandonment of the
project38.
In practice, technical qualification through technical and professional training can
be proven, for example, by requiring, in the notice that the bidder demonstrates that, on the
date set for the submission of the proposal, it has a professional or professionals with a higher
education degree and technical certificate(s) provided by a public or private legal entity, duly
registered with the competent authorities. Technical and operational training, also by way of
clarification, can be demonstrated by proving that the bidder has technical certificate(s) in
their name, provided by legal entities governed by public or private law, demonstrating
previous experience in the activity or activities related to the subject matter of the contract39.
37 C. S.ALTOUNIAN-M. A. A. FARIA, Qualificação Técnica na Contratação de Obras e Serviços de Engenharia:
Os Desafios na Definição das Exigências Corretas a fim de Evitar Restrição à Competição ou a Participação de
Empresas sem Capacidade de Execução do Objeto, Tribunais de Contas dos Municípios do Estado de Goiás, 30 set.
2020, p. 2-3. Avaible at this link.
38 C. S.ALTOUNIAN-M. A. A. FARIA, Qualificação Técnica na Contratação de Obras e Serviços de Engenharia:
Os Desafios na Definição das Exigências Corretas a fim de Evitar Restrição à Competição ou a Participação de
Empresas sem Capacidade de Execução do Objeto, cit., p. 4. Avaible at this link.
39 ID., Qualificação Técnica na Contratação de Obras e Serviços de Engenharia: Os Desafios na Definição das
Exigências Corretas a fim de Evitar Restrição à Competição ou a Participação de Empresas sem Capacidade de
Execução do Objeto, cit., p. 28-29.
______________________________________________________________________________
Copyleft – Ius Publicum
18
success of the future execution. This is why this type of contract often leads to a series of
setbacks, in which the Administration, when publishing the tender notice, receives numerous
requests for clarification and challenges related to the subject37.
Although less expensive contracting is desirable and, whenever possible, should be
pursued by the government, the lowest price is not always synonymous with the most
advantageous proposal. In the case of engineering works and services, a given company may
offer the lowest price for the execution of a project, but if it does not have sufficient technical
capacity to execute the project, it may cause enormous losses to the contractor, such as failure
to meet deadlines or scope, poor quality of services provided, and even abandonment of the
project38.
In practice, technical qualification through technical and professional training can
be proven, for example, by requiring, in the notice that the bidder demonstrates that, on the
date set for the submission of the proposal, it has a professional or professionals with a higher
education degree and technical certificate(s) provided by a public or private legal entity, duly
registered with the competent authorities. Technical and operational training, also by way of
clarification, can be demonstrated by proving that the bidder has technical certificate(s) in
their name, provided by legal entities governed by public or private law, demonstrating
previous experience in the activity or activities related to the subject matter of the contract39.
37 C. S.ALTOUNIAN-M. A. A. FARIA, Qualificação Técnica na Contratação de Obras e Serviços de Engenharia:
Os Desafios na Definição das Exigências Corretas a fim de Evitar Restrição à Competição ou a Participação de
Empresas sem Capacidade de Execução do Objeto, Tribunais de Contas dos Municípios do Estado de Goiás, 30 set.
2020, p. 2-3. Avaible at this link.
38 C. S.ALTOUNIAN-M. A. A. FARIA, Qualificação Técnica na Contratação de Obras e Serviços de Engenharia:
Os Desafios na Definição das Exigências Corretas a fim de Evitar Restrição à Competição ou a Participação de
Empresas sem Capacidade de Execução do Objeto, cit., p. 4. Avaible at this link.
39 ID., Qualificação Técnica na Contratação de Obras e Serviços de Engenharia: Os Desafios na Definição das
Exigências Corretas a fim de Evitar Restrição à Competição ou a Participação de Empresas sem Capacidade de
Execução do Objeto, cit., p. 28-29.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
19
Regarding technical prominence in this type of contract, however, with the intention
of defining the requirements that may be demanded in bids, technical qualification
requirements may be restricted only to the cases described in law40. This condition is due not
only to the imperative of the principle of strict legality of Public Administration, but
especially in view of the protection of the principle of broad competition and equality.
Therefore, even and especially in view of the specific requirements of engineering
works and services, the legal provisions and limits established must be observed. The greater
requirement for technical qualification/capacity in engineering works and services is
explained by the special nature of this type of contract, which may or may not be increased
in the case of ordinary or special works. To understand this, it is necessary to understand
what defines an engineering work and service.
"Work" is defined as any construction, renovation, manufacturing, restoration, or
expansion, carried out directly or indirectly, which requires the use of knowledge from
qualified professionals (IBAOP, 2018, p. 15).
"Engineering service" is understood as any activity that requires the participation
and monitoring of a qualified professional, such as repairing, installing, assembling,
operating, conserving, adapting, maintaining, transporting, or even demolishing. This
definition includes professional activities related to specialized professional technical
services for projects and planning, technical studies, opinions, expert reports, assessments,
advisory services, consulting, auditing, inspection, supervision, or management (IBAOP,
2018, p. 19).
Under the current legal regime, engineering works and services can be divided into
common engineering works and special engineering works. One of the innovations brought
about by the new Public Procurement Law (Law No. 14.133/2021) was to classify common
40 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, Câmara dos Deputados, Brasília, 2023, p. 312.
______________________________________________________________________________
Copyleft – Ius Publicum
19
Regarding technical prominence in this type of contract, however, with the intention
of defining the requirements that may be demanded in bids, technical qualification
requirements may be restricted only to the cases described in law40. This condition is due not
only to the imperative of the principle of strict legality of Public Administration, but
especially in view of the protection of the principle of broad competition and equality.
Therefore, even and especially in view of the specific requirements of engineering
works and services, the legal provisions and limits established must be observed. The greater
requirement for technical qualification/capacity in engineering works and services is
explained by the special nature of this type of contract, which may or may not be increased
in the case of ordinary or special works. To understand this, it is necessary to understand
what defines an engineering work and service.
"Work" is defined as any construction, renovation, manufacturing, restoration, or
expansion, carried out directly or indirectly, which requires the use of knowledge from
qualified professionals (IBAOP, 2018, p. 15).
"Engineering service" is understood as any activity that requires the participation
and monitoring of a qualified professional, such as repairing, installing, assembling,
operating, conserving, adapting, maintaining, transporting, or even demolishing. This
definition includes professional activities related to specialized professional technical
services for projects and planning, technical studies, opinions, expert reports, assessments,
advisory services, consulting, auditing, inspection, supervision, or management (IBAOP,
2018, p. 19).
Under the current legal regime, engineering works and services can be divided into
common engineering works and special engineering works. One of the innovations brought
about by the new Public Procurement Law (Law No. 14.133/2021) was to classify common
40 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, Câmara dos Deputados, Brasília, 2023, p. 312.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
20
engineering works as engineering works. For this purpose, bidding may take place without
the completion of a basic engineering project (Article 18, paragraph 3), and a shorter deadline
is required for the submission of proposals and bids, once the call for bids has been published
(Article 55, item II, subitem 'a'41).
Although the new Law does not define either of these concepts, it can be argued that
common works are those that are routine and represent the majority42. Their construction
methods, equipment, and materials used for their execution are frequently employed in that
region and are capable of being performed well by most of the potential bidders available.
Most works must be classified as such.
Special works, in turn, according to the same author (2021, p. 216), are
heterogeneous, complex works whose construction methods, equipment, and materials have
been used less frequently and/or pose unusual executive challenges for their completion,
sufficient to reduce the number of companies able to demonstrate experience in their
execution or to require specific measurement of skill/intellectual ability for the selection of
the future contractor.
For the direct and indirect execution of these engineering works and services, the
use of Building Information Modeling (BIM) has been encouraged, as a tool to change the
approach, foster collaboration, improve transparency and real-time control, and reduce
litigation would strengthen the article’s broader impact43. According to Article 3, item II, of
41 J. M. L.VARESCHINI, Diálogos sobre a nova lei de licitações e contratações: Lei 14.133/2021, Pinhais, Editora
JML, 2021.
42 Ibidem.
43 See: G. M. DI GIUDA-G. M. RACCA, From Works Contracts to Collaborative Contracts: The Challenges of
Building Information Modeling (BIM) in Public Procurement (G. M. RACCA – C. R. YUKINS eds.), Joint Public
Procurement and Innovation: Lessons Across Borders, cit. and G. M. DI GIUDA-V.VILLA-P.E
GIANA, Collaborative Contract With Building Information Modelling: Comparison Between Usa And European
Approach, Resilient Structures and Sustainable Construction (E. PELLICER-J- M. ADAM-V. YEPES,-A. SINGH-S.
YAZDANI eds.), ISEC Press, 2017.
______________________________________________________________________________
Copyleft – Ius Publicum
20
engineering works as engineering works. For this purpose, bidding may take place without
the completion of a basic engineering project (Article 18, paragraph 3), and a shorter deadline
is required for the submission of proposals and bids, once the call for bids has been published
(Article 55, item II, subitem 'a'41).
Although the new Law does not define either of these concepts, it can be argued that
common works are those that are routine and represent the majority42. Their construction
methods, equipment, and materials used for their execution are frequently employed in that
region and are capable of being performed well by most of the potential bidders available.
Most works must be classified as such.
Special works, in turn, according to the same author (2021, p. 216), are
heterogeneous, complex works whose construction methods, equipment, and materials have
been used less frequently and/or pose unusual executive challenges for their completion,
sufficient to reduce the number of companies able to demonstrate experience in their
execution or to require specific measurement of skill/intellectual ability for the selection of
the future contractor.
For the direct and indirect execution of these engineering works and services, the
use of Building Information Modeling (BIM) has been encouraged, as a tool to change the
approach, foster collaboration, improve transparency and real-time control, and reduce
litigation would strengthen the article’s broader impact43. According to Article 3, item II, of
41 J. M. L.VARESCHINI, Diálogos sobre a nova lei de licitações e contratações: Lei 14.133/2021, Pinhais, Editora
JML, 2021.
42 Ibidem.
43 See: G. M. DI GIUDA-G. M. RACCA, From Works Contracts to Collaborative Contracts: The Challenges of
Building Information Modeling (BIM) in Public Procurement (G. M. RACCA – C. R. YUKINS eds.), Joint Public
Procurement and Innovation: Lessons Across Borders, cit. and G. M. DI GIUDA-V.VILLA-P.E
GIANA, Collaborative Contract With Building Information Modelling: Comparison Between Usa And European
Approach, Resilient Structures and Sustainable Construction (E. PELLICER-J- M. ADAM-V. YEPES,-A. SINGH-S.
YAZDANI eds.), ISEC Press, 2017.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
21
Decree No. 10,306/2020, this is a set of integrated technologies and processes that enable the
creation, use, and updating of digital models of a construction in a collaborative manner that
serves all participants in the project at any stage of the construction life cycle.
Rafael Carvalho Rezende de Oliveira (2020, p. 35) clarifies that the model does not,
therefore, constitute a new regime for the execution of engineering works and services, but
rather a coordinated and collaborative digital model that involves the participation of
professionals involved in the design and management of a construction project at all stages,
which ensures greater transparency and efficiency in contracting.
There is even a preference for using the model in engineering and architectural
works and services. This is due to the technical qualifications required for the use of Building
Information Modeling, which are suited to the purpose of public tenders, generating and
maintaining three-dimensional information that guides the entire construction cycle44.
Examples of instruments that can prove technical qualification in BIM are:
Technical Collection Certificate (CAT); BIM certification; ISO qualification; certification
issued by contractors; evidence of similar work; public tender for the development of the
basic project in BIM45; evaluation of the quality of deliverables (BIM models) in previous
projects; and availability of adequate technological infrastructure of the company46.
44 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, cit., p. 312.
45 G. C. GONÇALVES, Protocolo de Gerenciamento BIM nas Fases de Contratação, Projeto e Obra em
Empreendimentos Civis baseado na ISSO 19650, Escola Politécnica da Universidade de São Paulo, Universidade
de São Paulo.
46 D. M. BRITO, Fatores Críticos de Sucesso para Implantação de Building Information Modelling (BIM) por
Organizações Públicas, Escola Politécnica da Universidade Federal da Bahia, Universidade Federal da Bahia,
Salvador, p. 191, 2019.
______________________________________________________________________________
Copyleft – Ius Publicum
21
Decree No. 10,306/2020, this is a set of integrated technologies and processes that enable the
creation, use, and updating of digital models of a construction in a collaborative manner that
serves all participants in the project at any stage of the construction life cycle.
Rafael Carvalho Rezende de Oliveira (2020, p. 35) clarifies that the model does not,
therefore, constitute a new regime for the execution of engineering works and services, but
rather a coordinated and collaborative digital model that involves the participation of
professionals involved in the design and management of a construction project at all stages,
which ensures greater transparency and efficiency in contracting.
There is even a preference for using the model in engineering and architectural
works and services. This is due to the technical qualifications required for the use of Building
Information Modeling, which are suited to the purpose of public tenders, generating and
maintaining three-dimensional information that guides the entire construction cycle44.
Examples of instruments that can prove technical qualification in BIM are:
Technical Collection Certificate (CAT); BIM certification; ISO qualification; certification
issued by contractors; evidence of similar work; public tender for the development of the
basic project in BIM45; evaluation of the quality of deliverables (BIM models) in previous
projects; and availability of adequate technological infrastructure of the company46.
44 F. D. ALVES-R. A. AMORIM-M. C. MATOS, Nova Lei de Licitações e Contratos [recurso eletrônico]: Lei nº
14.133/2021: Debates, perspectivas e desafios, cit., p. 312.
45 G. C. GONÇALVES, Protocolo de Gerenciamento BIM nas Fases de Contratação, Projeto e Obra em
Empreendimentos Civis baseado na ISSO 19650, Escola Politécnica da Universidade de São Paulo, Universidade
de São Paulo.
46 D. M. BRITO, Fatores Críticos de Sucesso para Implantação de Building Information Modelling (BIM) por
Organizações Públicas, Escola Politécnica da Universidade Federal da Bahia, Universidade Federal da Bahia,
Salvador, p. 191, 2019.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
22
It is the uniqueness of contracting engineering works and services - whether
common or special, in BIM or another model - that demonstrates that technical qualification
is one of its main, if not the main, distinguishing factors. Proof of this can be found in the
extensive rulings handed down by the Federal Court of Auditors on technicality in
engineering works and services. This is exemplified by some Precedents attached by the
Court:
SÚMULA TCU 260: É dever do gestor exigir apresentação de Anotação de
Responsabilidade Técnica - ART referente a projeto, execução, supervisão e fiscalização de
obras e serviços de engenharia, com indicação do responsável pela elaboração de plantas,
orçamento-base, especificações téc47nicas, composições de custos unitários, cronograma
físico-financeiro e outras peças técnicas.
SÚMULA TCU 261: Em licitações de obras e serviços de engenharia, é necessária
a elaboração de projeto básico adequado e atualizado, assim considerado aquele aprovado
com todos os elementos descritos no art. 6º, inciso IX, da Lei 8.666, de 21 de junho de 1993,
constituindo prática ilegal a revisão de projeto básico ou a elaboração de projeto executivo
que transfigurem o objeto originalmente contratado em outro de natureza e propósito
diversos48.
SÚMULA TCU 263: Para a comprovação da capacidade técnico-operacional das
licitantes, e desde que limitada, simultaneamente, às parcelas de maior relevância e valor
significativo do objeto a ser contratado, é legal a exigência de comprovação da execução de
47 Federal Court of Accounts. Precedent 260, Judgment 1524/2010, Plenary Session, Reporting Judge: Augusto
Nardes, Judgment: 06/30/2010.
48 Federal Court of Accounts. Precedent 261, Judgment 1536/2010, Plenary Session, Reporting Judge: José Múcio
Monteiro, Judgment: June 30, 2010.
______________________________________________________________________________
Copyleft – Ius Publicum
22
It is the uniqueness of contracting engineering works and services - whether
common or special, in BIM or another model - that demonstrates that technical qualification
is one of its main, if not the main, distinguishing factors. Proof of this can be found in the
extensive rulings handed down by the Federal Court of Auditors on technicality in
engineering works and services. This is exemplified by some Precedents attached by the
Court:
SÚMULA TCU 260: É dever do gestor exigir apresentação de Anotação de
Responsabilidade Técnica - ART referente a projeto, execução, supervisão e fiscalização de
obras e serviços de engenharia, com indicação do responsável pela elaboração de plantas,
orçamento-base, especificações téc47nicas, composições de custos unitários, cronograma
físico-financeiro e outras peças técnicas.
SÚMULA TCU 261: Em licitações de obras e serviços de engenharia, é necessária
a elaboração de projeto básico adequado e atualizado, assim considerado aquele aprovado
com todos os elementos descritos no art. 6º, inciso IX, da Lei 8.666, de 21 de junho de 1993,
constituindo prática ilegal a revisão de projeto básico ou a elaboração de projeto executivo
que transfigurem o objeto originalmente contratado em outro de natureza e propósito
diversos48.
SÚMULA TCU 263: Para a comprovação da capacidade técnico-operacional das
licitantes, e desde que limitada, simultaneamente, às parcelas de maior relevância e valor
significativo do objeto a ser contratado, é legal a exigência de comprovação da execução de
47 Federal Court of Accounts. Precedent 260, Judgment 1524/2010, Plenary Session, Reporting Judge: Augusto
Nardes, Judgment: 06/30/2010.
48 Federal Court of Accounts. Precedent 261, Judgment 1536/2010, Plenary Session, Reporting Judge: José Múcio
Monteiro, Judgment: June 30, 2010.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
23
quantitativos mínimos em obras ou serviços com características semelhantes, devendo essa
exigência guardar proporção com a dimensão e a complexidade do objeto a ser executado49.
The Federal Court of Accounts, in Judgment 19/2017-Plenary50 once again ratified
the importance of technical expertise in engineering works and services in a final judgment
dealing with BIM Methodology. In the case in question, a company filed a request regarding
possible irregularities in Tender No. 02/2015, promoted by the General Coordination of
Acquisitions of the Ministry of Planning and Management, in which the contract was
intended for a company specializing in technical engineering services to carry out works and
services in Block "O" of the Esplanada dos Ministérios, in Brasília-DF.
Among the irregularities cited, was the use of new technologies, such as Building
Information Modeling (BIM), which is why the applicant requested a preliminary injunction
to suspend Competition No. 02/2015 and any other acts arising therefrom or from the , as
well as the cancellation of the bidding process and, eventually, the contract, which would
lead to a new bidding process without the aforementioned controversial issues.
On this point, we refer to the views of Nathalia Fukunaga51 on the recommendations
and guidelines issued by the Court in its ruling on the use of BIM methodology in public
procurement, together with excerpts from the ruling:
49 Federal Court of Accounts. Precedent 263, Judgment 32/2011, Plenary Session, Reporting Judge: Ubiratan Aguiar,
Judgment: January 19, 2011.
50 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
51 N. FUKUNAGA, A Utilização da Modelagem da Informação da Construção no Processo de Desenvolvimento
das Contratações Públicas, Infraestrutura Jurídica da Inovação: Anais do 2° Congresso Infraestrutura Jurídica da
Ciência, Tecnologia e Inovação nos Países em Desenvolvimento (J. F. SIQUEIRA NETO, D. F. N. MENEZES eds.) v.
2, Belo Horizonte, Arraes Editores, 2020.
______________________________________________________________________________
Copyleft – Ius Publicum
23
quantitativos mínimos em obras ou serviços com características semelhantes, devendo essa
exigência guardar proporção com a dimensão e a complexidade do objeto a ser executado49.
The Federal Court of Accounts, in Judgment 19/2017-Plenary50 once again ratified
the importance of technical expertise in engineering works and services in a final judgment
dealing with BIM Methodology. In the case in question, a company filed a request regarding
possible irregularities in Tender No. 02/2015, promoted by the General Coordination of
Acquisitions of the Ministry of Planning and Management, in which the contract was
intended for a company specializing in technical engineering services to carry out works and
services in Block "O" of the Esplanada dos Ministérios, in Brasília-DF.
Among the irregularities cited, was the use of new technologies, such as Building
Information Modeling (BIM), which is why the applicant requested a preliminary injunction
to suspend Competition No. 02/2015 and any other acts arising therefrom or from the , as
well as the cancellation of the bidding process and, eventually, the contract, which would
lead to a new bidding process without the aforementioned controversial issues.
On this point, we refer to the views of Nathalia Fukunaga51 on the recommendations
and guidelines issued by the Court in its ruling on the use of BIM methodology in public
procurement, together with excerpts from the ruling:
49 Federal Court of Accounts. Precedent 263, Judgment 32/2011, Plenary Session, Reporting Judge: Ubiratan Aguiar,
Judgment: January 19, 2011.
50 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
51 N. FUKUNAGA, A Utilização da Modelagem da Informação da Construção no Processo de Desenvolvimento
das Contratações Públicas, Infraestrutura Jurídica da Inovação: Anais do 2° Congresso Infraestrutura Jurídica da
Ciência, Tecnologia e Inovação nos Países em Desenvolvimento (J. F. SIQUEIRA NETO, D. F. N. MENEZES eds.) v.
2, Belo Horizonte, Arraes Editores, 2020.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
24
(i) Metodologia BIM constitui uma oportunidade inovadora e eficiente na execução,
manutenção e controle das obras. A integração do ciclo de vida da obra possibilita um
acompanhamento conjunto de todos os elementos para a concepção da obra
“Assim, considerando a necessidade de modernização dos sistemas de redes nos
órgãos públicos e a oportunidade vislumbrada com a reforma do Bloco "O" da Esplanada,
o qual servirá como piloto para os demais prédios, entende-se razoável a exigência da
qualificação no edital da reforma pretendida. Configura, no caso concreto, oportunidade de
se implantar tecnologia mais eficiente e moderna em edifícios cujas chances para a
realização de reformas dessa magnitude novamente são escassas, seja em função da
ausência de recursos, seja em função da necessidade de desocupação pelos usuários. Quanto
à tecnologia BIM, verifica-se que ela oferece benefícios para as etapas de execução das
obras, além de propiciar melhor controle na fase posterior, de manutenção do edifício, por
meio da construção de modelo virtual que compreende todos os elementos da edificação,
desde a arquitetura, estrutura, até as instalações. (...) Além disso, permite que os projetos as
built (como construído), a serem entregues pela contratada ao final da obra, sejam
elaborados ao longo da execução dos serviços, reproduzindo, de forma fidedigna, os
elementos de arquitetura e instalações empregados, gerando modelo tridimensional
completo do prédio52”. (ii) A exigência de comprovação de habilitação técnico-operacional
em Metodologia BIM (não) configura restrição ao caráter competitivo na licitação.
On the issue of experience in performing Building Information Modeling in public
procurement, the author continues with her understanding and the positions of the TCU—
which she considers to be undefined—in the same ruling53:
52 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
53 N. FUKUNAGA, A Utilização da Modelagem da Informação da Construção no Processo de Desenvolvimento
das Contratações Públicas, Infraestrutura Jurídica da Inovação: Anais do 2° Congresso Infraestrutura Jurídica da
Ciência, Tecnologia e Inovação nos Países em Desenvolvimento (J. F. SIQUEIRA NETO, D. F. N. MENEZES eds.), cit.,
p. 173-174.
______________________________________________________________________________
Copyleft – Ius Publicum
24
(i) Metodologia BIM constitui uma oportunidade inovadora e eficiente na execução,
manutenção e controle das obras. A integração do ciclo de vida da obra possibilita um
acompanhamento conjunto de todos os elementos para a concepção da obra
“Assim, considerando a necessidade de modernização dos sistemas de redes nos
órgãos públicos e a oportunidade vislumbrada com a reforma do Bloco "O" da Esplanada,
o qual servirá como piloto para os demais prédios, entende-se razoável a exigência da
qualificação no edital da reforma pretendida. Configura, no caso concreto, oportunidade de
se implantar tecnologia mais eficiente e moderna em edifícios cujas chances para a
realização de reformas dessa magnitude novamente são escassas, seja em função da
ausência de recursos, seja em função da necessidade de desocupação pelos usuários. Quanto
à tecnologia BIM, verifica-se que ela oferece benefícios para as etapas de execução das
obras, além de propiciar melhor controle na fase posterior, de manutenção do edifício, por
meio da construção de modelo virtual que compreende todos os elementos da edificação,
desde a arquitetura, estrutura, até as instalações. (...) Além disso, permite que os projetos as
built (como construído), a serem entregues pela contratada ao final da obra, sejam
elaborados ao longo da execução dos serviços, reproduzindo, de forma fidedigna, os
elementos de arquitetura e instalações empregados, gerando modelo tridimensional
completo do prédio52”. (ii) A exigência de comprovação de habilitação técnico-operacional
em Metodologia BIM (não) configura restrição ao caráter competitivo na licitação.
On the issue of experience in performing Building Information Modeling in public
procurement, the author continues with her understanding and the positions of the TCU—
which she considers to be undefined—in the same ruling53:
52 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
53 N. FUKUNAGA, A Utilização da Modelagem da Informação da Construção no Processo de Desenvolvimento
das Contratações Públicas, Infraestrutura Jurídica da Inovação: Anais do 2° Congresso Infraestrutura Jurídica da
Ciência, Tecnologia e Inovação nos Países em Desenvolvimento (J. F. SIQUEIRA NETO, D. F. N. MENEZES eds.), cit.,
p. 173-174.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
25
Por um lado, o TCU reconhece que a Metodologia BIM é uma oportunidade de
inovação capaz de proporcionar eficiência e otimização nas contratações públicas:
“Portanto, entende-se que a experiência prévia das licitantes na utilização da
tecnologia BIM não configura exigência excessiva e restritiva para a habilitação. Além
disso, em que pese a sua reduzida representatividade no valor total da contratação, os
benefícios posteriores por ela trazidos quanto à construção e manutenção da edificação
sopesam tais argumentos. Diante das análises acima, verifica-se que não assiste razão nos
argumentos trazidos pela representante quanto às exigências de comprovação de habilitação
técnico-operacional das empresas, no que tange ao emprego das tecnologias GPON e
BIM54”.
Por outro lado, no decorrer do Acordão n° 19/2017, o TCU demanda uma avaliação
mais sensível e cuidadosa com relação a exigência de atestados técnicos com a Metodologia
BIM que possam frustrar o caráter competitivo da licitação, inclusive, recomenda ao
Ministério do Planejamento, Desenvolvimento e Gestão uma análise da "real necessidade"
da sua exigência:
“Em acréscimo ao exame realizado, é pertinente ressaltar que o próprio MPOG
informou que a implantação de tecnologia GPON é relativamente recente no Brasil, assim
como o uso do BIM - Building Information Model, na confecção de projetos executivos de
obras e serviços de engenharia. Embora considere um avanço o emprego de novas
tecnologias nas obras públicas, julgo que a exigências dos respectivos atestados técnicos
tenha que ser avaliada com muita cautela55”.
54 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
55 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
______________________________________________________________________________
Copyleft – Ius Publicum
25
Por um lado, o TCU reconhece que a Metodologia BIM é uma oportunidade de
inovação capaz de proporcionar eficiência e otimização nas contratações públicas:
“Portanto, entende-se que a experiência prévia das licitantes na utilização da
tecnologia BIM não configura exigência excessiva e restritiva para a habilitação. Além
disso, em que pese a sua reduzida representatividade no valor total da contratação, os
benefícios posteriores por ela trazidos quanto à construção e manutenção da edificação
sopesam tais argumentos. Diante das análises acima, verifica-se que não assiste razão nos
argumentos trazidos pela representante quanto às exigências de comprovação de habilitação
técnico-operacional das empresas, no que tange ao emprego das tecnologias GPON e
BIM54”.
Por outro lado, no decorrer do Acordão n° 19/2017, o TCU demanda uma avaliação
mais sensível e cuidadosa com relação a exigência de atestados técnicos com a Metodologia
BIM que possam frustrar o caráter competitivo da licitação, inclusive, recomenda ao
Ministério do Planejamento, Desenvolvimento e Gestão uma análise da "real necessidade"
da sua exigência:
“Em acréscimo ao exame realizado, é pertinente ressaltar que o próprio MPOG
informou que a implantação de tecnologia GPON é relativamente recente no Brasil, assim
como o uso do BIM - Building Information Model, na confecção de projetos executivos de
obras e serviços de engenharia. Embora considere um avanço o emprego de novas
tecnologias nas obras públicas, julgo que a exigências dos respectivos atestados técnicos
tenha que ser avaliada com muita cautela55”.
54 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
55 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
26
"(...) 9.5 recomendar ao Ministério do Planejamento, Desenvolvimento e Gestão
que: 9.5.2 avalie a real necessidade de exigir atestados técnicos referentes a novas
tecnologias ou materiais, quando constatar que tais exigências possam frustrar o caráter
competitivo da licitação, fomentar a formação de cartéis ou comprometer o desenvolvimento
da engenharia nacional56”.
Even in the absence of a clear position from the Court on the application of BIM, its
perception of the Methodology as an innovative and necessary opportunity in the design,
management, and supervision of public works is evident. Equally tangible is its concern
regarding the verification of technical certificates demonstrating prior experience with the
BIM Methodology, since this requirement could potentially undermine the competitive
nature of the bidding process57.
Regarding this last point, it is worth remembering that technical requirements -
especially in the case of specific activities such as engineering works and services, and
particularly with the use of Building Information Modeling - should never be so demanding
as to make the tender process unfeasible. The jurisprudence of the TCU has been clear in this
regard:
REPRESENTAÇÃO. LICITAÇÃO DE OBRA E SERVIÇOS DE ENGENHARIA DE
TORRE DE CONTROLE, SEGURANÇA E PROTEÇÃO AEROPORTUÁRIA, BEM
COMO DE SERVIÇOS COMPLEMENTARES DE RECUPERAÇÃO DE PISTAS E
PÁTIOS DE AERONAVES NO AEROPORTO DE CONGONHAS/SP. EXIGÊNCIAS DE
PRÉ-QUALIFICAÇÃO QUE COMPROMETEM O CARÁTER COMPETITIVO DO
56 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
57 N. FUKUNAGA, A Utilização da Modelagem da Informação da Construção no Processo de Desenvolvimento
das Contratações Públicas, in J. F. Siqueira Neto, D. F. N. Menezes, Infraestrutura Jurídica da Inovação: Anais do
2° Congresso Infraestrutura Jurídica da Ciência, Tecnologia e Inovação nos Países em Desenvolvimento, p. 174.
______________________________________________________________________________
Copyleft – Ius Publicum
26
"(...) 9.5 recomendar ao Ministério do Planejamento, Desenvolvimento e Gestão
que: 9.5.2 avalie a real necessidade de exigir atestados técnicos referentes a novas
tecnologias ou materiais, quando constatar que tais exigências possam frustrar o caráter
competitivo da licitação, fomentar a formação de cartéis ou comprometer o desenvolvimento
da engenharia nacional56”.
Even in the absence of a clear position from the Court on the application of BIM, its
perception of the Methodology as an innovative and necessary opportunity in the design,
management, and supervision of public works is evident. Equally tangible is its concern
regarding the verification of technical certificates demonstrating prior experience with the
BIM Methodology, since this requirement could potentially undermine the competitive
nature of the bidding process57.
Regarding this last point, it is worth remembering that technical requirements -
especially in the case of specific activities such as engineering works and services, and
particularly with the use of Building Information Modeling - should never be so demanding
as to make the tender process unfeasible. The jurisprudence of the TCU has been clear in this
regard:
REPRESENTAÇÃO. LICITAÇÃO DE OBRA E SERVIÇOS DE ENGENHARIA DE
TORRE DE CONTROLE, SEGURANÇA E PROTEÇÃO AEROPORTUÁRIA, BEM
COMO DE SERVIÇOS COMPLEMENTARES DE RECUPERAÇÃO DE PISTAS E
PÁTIOS DE AERONAVES NO AEROPORTO DE CONGONHAS/SP. EXIGÊNCIAS DE
PRÉ-QUALIFICAÇÃO QUE COMPROMETEM O CARÁTER COMPETITIVO DO
56 Federal Court of Accounts. Judgment 19/2017, Plenary Session, Reporting Judge: Benjamin Zymler, Judgment:
January 13, 2017.
57 N. FUKUNAGA, A Utilização da Modelagem da Informação da Construção no Processo de Desenvolvimento
das Contratações Públicas, in J. F. Siqueira Neto, D. F. N. Menezes, Infraestrutura Jurídica da Inovação: Anais do
2° Congresso Infraestrutura Jurídica da Ciência, Tecnologia e Inovação nos Países em Desenvolvimento, p. 174.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
27
CERTAME. PROCEDÊNCIA PARCIAL. DETERMINAÇÃO À INFRAERO PARA
ANULAÇÃO DO EDITAL.
1. É vedada a imposição de exigências excessivas que frustrem o caráter
competitivo do certame licitatório, nos termos do art. 37, inciso XXI, da Constituição Federal
e do art. 30, § 1º, inciso I , da Lei 8.666/93.
2. A Administração tem o dever de demonstrar que as exigências de capacitação
técnico-profissional dos licitantes devem simultaneamente recair sobre parcelas de maior
relevância e de valor significativo do objeto da licitação, conforme art. 30, § 1º, inciso I , da
Lei 8.666/93.
3. A apresentação de atestados de capacitação técnico-operacional encontra-se
restrita aos limites do art. 37, inciso XXI, da Constituição Federal, que somente admite
exigências de qualificação técnica indispensáveis à garantia do cumprimento das
obrigações.
4. O estabelecimento de condições diferenciadas de qualificação econômico-
financeira entre licitantes cadastrados e não-cadastrados no Sicaf (Sistema de Cadastramento
Unificado de Fornecedores) viola o princípio da isonomia entre licitantes58.
REPRESENTAÇÃO. PREFEITURA MUNICIPAL DE IPIRÁ - BA.
CONCORRÊNCIA PÚBLICA 1/2020. IRREGULARIDADES
CONSTATADAS. DETERMINAÇÃO À UNIDADE JURISDICIONADA PARA
ANULAR O CERTAME E OS ATOS DELE DECORRENTES. PROCEDÊNCIA.
CIÊNCIA. ARQUIVAMENTO. É restritivo à competitividade cláusula que exija a
apresentação de documentação com firma reconhecida em cartório. Não cabe à
58 Federal Court of Accounts. Judgment 1332/2006, Plenary Session, Reporting Judge: Walton Alencar Rodrigues,
Judgment: August 2, 2006.
______________________________________________________________________________
Copyleft – Ius Publicum
27
CERTAME. PROCEDÊNCIA PARCIAL. DETERMINAÇÃO À INFRAERO PARA
ANULAÇÃO DO EDITAL.
1. É vedada a imposição de exigências excessivas que frustrem o caráter
competitivo do certame licitatório, nos termos do art. 37, inciso XXI, da Constituição Federal
e do art. 30, § 1º, inciso I , da Lei 8.666/93.
2. A Administração tem o dever de demonstrar que as exigências de capacitação
técnico-profissional dos licitantes devem simultaneamente recair sobre parcelas de maior
relevância e de valor significativo do objeto da licitação, conforme art. 30, § 1º, inciso I , da
Lei 8.666/93.
3. A apresentação de atestados de capacitação técnico-operacional encontra-se
restrita aos limites do art. 37, inciso XXI, da Constituição Federal, que somente admite
exigências de qualificação técnica indispensáveis à garantia do cumprimento das
obrigações.
4. O estabelecimento de condições diferenciadas de qualificação econômico-
financeira entre licitantes cadastrados e não-cadastrados no Sicaf (Sistema de Cadastramento
Unificado de Fornecedores) viola o princípio da isonomia entre licitantes58.
REPRESENTAÇÃO. PREFEITURA MUNICIPAL DE IPIRÁ - BA.
CONCORRÊNCIA PÚBLICA 1/2020. IRREGULARIDADES
CONSTATADAS. DETERMINAÇÃO À UNIDADE JURISDICIONADA PARA
ANULAR O CERTAME E OS ATOS DELE DECORRENTES. PROCEDÊNCIA.
CIÊNCIA. ARQUIVAMENTO. É restritivo à competitividade cláusula que exija a
apresentação de documentação com firma reconhecida em cartório. Não cabe à
58 Federal Court of Accounts. Judgment 1332/2006, Plenary Session, Reporting Judge: Walton Alencar Rodrigues,
Judgment: August 2, 2006.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
28
Administração estabelecer, sem base objetiva, critério de cunho técnico que exorbita a
regulamentação profissional. É irregular a cláusula do instrumento convocatório que exige
comprovação de qualificação técnica para além do indispensável à garantia da execução do
objeto licitado. "Nas contratações de obras e serviços de engenharia, a definição do critério
de aceitabilidade dos preços unitários e global, com fixação de preços máximos para ambos,
é obrigação e não faculdade do gestor59".
REPRESENTAÇÃO. LICITAÇÃO PARA CONTRATAÇÃO DE SERVIÇOS DE
ENGENHARIA E ARQUITETURA. ADOÇÃO INDEVIDA DA MODALIDADE
CONCORRÊNCIA DO TIPO TÉCNICA E PREÇO. CABIMENTO DE PREGÃO
ELETRÔNICO. PONTUAÇÃO TÉCNICA EXCESSIVA E INJUSTIFICADA. OITIVA.
ARGUMENTOS INSUFICIENTES PARA AFASTAR OS INDICATIVOS DE
IRREGULARIDADES. ADOÇÃO DE MEDIDA CAUTELAR. SUSPENSÃO DA
LICITAÇÃO OU DE ATOS DE EXECUÇÃO DE EVENTUAL CONTRATO ASSINADO.
REFERENDO PELO PLENÁRIO.
2. A representante contesta especificamente a inclusão, como quesito de pontuação
técnica, de experiência comprovada na "Elaboração de Projetos Prediais utilizando a
tecnologia BIM" (Building Information Modelling ou Modelagem da Informação da
Construção), conforme os itens 9.3.8.2 e 9.3.9 do edital.
3. Segundo a Ceppla, o conhecimento sobre a aplicação de um software não mede a
qualificação técnica pertinente ao objeto, violando o art. 30 da Lei 8.666/1993. Argumenta
que existiria apenas um pequeno grupo de empresas que detêm atestados para a tecnologia
BIM, ainda não bem difundida no mercado, aspecto que indicaria restrição à disputa e
direcionamento da licitação, tanto que só uma concorrente forneceu documentação
59 Federal Court of Accounts. Judgment 4061/2017, Plenary Session, Reporting Judge: Raimundo Carneiro,
Judgment: December, 08, 2020.
______________________________________________________________________________
Copyleft – Ius Publicum
28
Administração estabelecer, sem base objetiva, critério de cunho técnico que exorbita a
regulamentação profissional. É irregular a cláusula do instrumento convocatório que exige
comprovação de qualificação técnica para além do indispensável à garantia da execução do
objeto licitado. "Nas contratações de obras e serviços de engenharia, a definição do critério
de aceitabilidade dos preços unitários e global, com fixação de preços máximos para ambos,
é obrigação e não faculdade do gestor59".
REPRESENTAÇÃO. LICITAÇÃO PARA CONTRATAÇÃO DE SERVIÇOS DE
ENGENHARIA E ARQUITETURA. ADOÇÃO INDEVIDA DA MODALIDADE
CONCORRÊNCIA DO TIPO TÉCNICA E PREÇO. CABIMENTO DE PREGÃO
ELETRÔNICO. PONTUAÇÃO TÉCNICA EXCESSIVA E INJUSTIFICADA. OITIVA.
ARGUMENTOS INSUFICIENTES PARA AFASTAR OS INDICATIVOS DE
IRREGULARIDADES. ADOÇÃO DE MEDIDA CAUTELAR. SUSPENSÃO DA
LICITAÇÃO OU DE ATOS DE EXECUÇÃO DE EVENTUAL CONTRATO ASSINADO.
REFERENDO PELO PLENÁRIO.
2. A representante contesta especificamente a inclusão, como quesito de pontuação
técnica, de experiência comprovada na "Elaboração de Projetos Prediais utilizando a
tecnologia BIM" (Building Information Modelling ou Modelagem da Informação da
Construção), conforme os itens 9.3.8.2 e 9.3.9 do edital.
3. Segundo a Ceppla, o conhecimento sobre a aplicação de um software não mede a
qualificação técnica pertinente ao objeto, violando o art. 30 da Lei 8.666/1993. Argumenta
que existiria apenas um pequeno grupo de empresas que detêm atestados para a tecnologia
BIM, ainda não bem difundida no mercado, aspecto que indicaria restrição à disputa e
direcionamento da licitação, tanto que só uma concorrente forneceu documentação
59 Federal Court of Accounts. Judgment 4061/2017, Plenary Session, Reporting Judge: Raimundo Carneiro,
Judgment: December, 08, 2020.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
29
correlata. Aduz que o serviço de elaboração de projetos, que utilizaria o BIM, significa
menos de 2% do valor global a ser contratado60.
Therefore, it is common for technical requirements to reduce the pool of bidders,
but they should never segment competitors excessively and unavoidably in order to direct or
undermine competition.
After this theoretical explanation of the main concepts and aspects related to the
subject of this article, we will now present the empirical research conducted on BIM bidding
notices. The objective is to understand the current scenario, without attempting to exhaust
the subject, in terms of the evaluation criteria in order to extract the limits of the bidding
requirements regarding the technical capacity of bidders.
4. EMPIRICAL RESEARCH METHODOLOGY
This section presents the research methodology used in this article. First, it is
important to highlight the choice of empirical research, defined as research dedicated to the
empirical and factual treatment of reality; it produces and analyzes data, always proceeding
through empirical and factual control61.Therefore, this research was based on (i) data
collection, (ii) data observation, and (iii) quantitative and qualitative inferences.
First, the scope of the research is defined for the collection of initial data. Since the
objective of this article is to list the main limits of the requirements in public notices regarding
technical, professional, and operational capacity in BIM construction bids, it is obviously
important to understand the current scenario of public procurement with this scope. This will
make it possible to observe how technical capacity is being required, identifying any excesses
60 Federal Court of Accounts. Judgment 241/2023, Plenary Session, Reporting Judge: Minister Vital do Rêgo,
Judgment: February 15, 2023.
61 P. DEMO, Metodologia do conhecimento científico, São Paulo, Atlas, 2000.
______________________________________________________________________________
Copyleft – Ius Publicum
29
correlata. Aduz que o serviço de elaboração de projetos, que utilizaria o BIM, significa
menos de 2% do valor global a ser contratado60.
Therefore, it is common for technical requirements to reduce the pool of bidders,
but they should never segment competitors excessively and unavoidably in order to direct or
undermine competition.
After this theoretical explanation of the main concepts and aspects related to the
subject of this article, we will now present the empirical research conducted on BIM bidding
notices. The objective is to understand the current scenario, without attempting to exhaust
the subject, in terms of the evaluation criteria in order to extract the limits of the bidding
requirements regarding the technical capacity of bidders.
4. EMPIRICAL RESEARCH METHODOLOGY
This section presents the research methodology used in this article. First, it is
important to highlight the choice of empirical research, defined as research dedicated to the
empirical and factual treatment of reality; it produces and analyzes data, always proceeding
through empirical and factual control61.Therefore, this research was based on (i) data
collection, (ii) data observation, and (iii) quantitative and qualitative inferences.
First, the scope of the research is defined for the collection of initial data. Since the
objective of this article is to list the main limits of the requirements in public notices regarding
technical, professional, and operational capacity in BIM construction bids, it is obviously
important to understand the current scenario of public procurement with this scope. This will
make it possible to observe how technical capacity is being required, identifying any excesses
60 Federal Court of Accounts. Judgment 241/2023, Plenary Session, Reporting Judge: Minister Vital do Rêgo,
Judgment: February 15, 2023.
61 P. DEMO, Metodologia do conhecimento científico, São Paulo, Atlas, 2000.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
30
that could compromise the fairness of the tender process and, ultimately, listing the best ways
for the Public Administration to prepare tenders.
Therefore, the data collection stage was based on documentary research, namely the
search for tender notices, in different phases and federal entities, which included in their
object the contracting of BIM engineering works and/or services.
To this end, the website of the National Public Procurement Portal62 was used, under
the tab "Contratações - Editais e Avisos de Contratações" (Procurement – Procurement
Notices and Announcements)63 . In the corresponding search field, the keyword "BIM" was
used first. In a second step, the keyword "Building Information Modeling" was used. It
should be noted that both searches returned the same results.
These keywords were used with the following status filters available on the website:
“A receber/Recebendo propostas”; “Em julgamento/Propostas Encerradas” and
“Encerradas”.
In addition, the search covered all Contracting Modalities64 , all Agencies, Units,
Federal Units, Municipalities, Spheres, and Powers available in the website filter, in order to
obtain the highest number of results.
The table below shows the raw results obtained:
Table 1
62 https://www.gov.br/pncp/pt-br
63 https://pncp.gov.br/app/editais?q=&status=recebendo_proposta&pagina=1
64 Non-enforceability, Waiver of bidding, Electronic and In-Person Auctions, Electronic and In-Person Competition,
Accreditation, Electronic and In-Person Contests and Auctions.
______________________________________________________________________________
Copyleft – Ius Publicum
30
that could compromise the fairness of the tender process and, ultimately, listing the best ways
for the Public Administration to prepare tenders.
Therefore, the data collection stage was based on documentary research, namely the
search for tender notices, in different phases and federal entities, which included in their
object the contracting of BIM engineering works and/or services.
To this end, the website of the National Public Procurement Portal62 was used, under
the tab "Contratações - Editais e Avisos de Contratações" (Procurement – Procurement
Notices and Announcements)63 . In the corresponding search field, the keyword "BIM" was
used first. In a second step, the keyword "Building Information Modeling" was used. It
should be noted that both searches returned the same results.
These keywords were used with the following status filters available on the website:
“A receber/Recebendo propostas”; “Em julgamento/Propostas Encerradas” and
“Encerradas”.
In addition, the search covered all Contracting Modalities64 , all Agencies, Units,
Federal Units, Municipalities, Spheres, and Powers available in the website filter, in order to
obtain the highest number of results.
The table below shows the raw results obtained:
Table 1
62 https://www.gov.br/pncp/pt-br
63 https://pncp.gov.br/app/editais?q=&status=recebendo_proposta&pagina=1
64 Non-enforceability, Waiver of bidding, Electronic and In-Person Auctions, Electronic and In-Person Competition,
Accreditation, Electronic and In-Person Contests and Auctions.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
31
Status Number of
Public Notices
Pending/Receiving proposals 0
Under review/Proposals closed 1
Closed 47
TOTAL 71
Source - Own elaboration
This gross result was then subjected to a preliminary analysis to assess the subject
matter of the Public Notice, in order to determine whether all results specifically addressed
the contracting of BIM engineering works and/or services. Based on this analysis, it was
possible to refine the initial data, generating a net result, described below:
Table 2
S
tatus
G
ross
Result
Subject
Qu
antity per
Purpose
E
xclusions
N
et Result
Receivable/Receivin
g proposals
8
Preparation of
Basic and/or Executive
Projects for
Construction
6 2
4
Not applicable 2 N/
A
______________________________________________________________________________
Copyleft – Ius Publicum
31
Status Number of
Public Notices
Pending/Receiving proposals 0
Under review/Proposals closed 1
Closed 47
TOTAL 71
Source - Own elaboration
This gross result was then subjected to a preliminary analysis to assess the subject
matter of the Public Notice, in order to determine whether all results specifically addressed
the contracting of BIM engineering works and/or services. Based on this analysis, it was
possible to refine the initial data, generating a net result, described below:
Table 2
S
tatus
G
ross
Result
Subject
Qu
antity per
Purpose
E
xclusions
N
et Result
Receivable/Receivin
g proposals
8
Preparation of
Basic and/or Executive
Projects for
Construction
6 2
4
Not applicable 2 N/
A
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
32
Under review/Proposals closed
16
Preparation of
Basic and/or Executive
Projects for
Construction Works
8 1
7
Acquisition of
BIM Software 4 N/
A
Contracting
BIM courses 3 N/
A
Not applicable 1 N/
A
Closed
47
Preparation of
Basic and/or Executive
Projects for
Construction Works
11 2
9
Acquisition of
BIM Software 12 N/
A
Contracting
BIM courses 24 N/
A
Technical
Assistance for Contract
Supervision
1 N/
A
No relation 0 N/
TOTAL NET INCOME 20
Source - Own elaboration
______________________________________________________________________________
Copyleft – Ius Publicum
32
Under review/Proposals closed
16
Preparation of
Basic and/or Executive
Projects for
Construction Works
8 1
7
Acquisition of
BIM Software 4 N/
A
Contracting
BIM courses 3 N/
A
Not applicable 1 N/
A
Closed
47
Preparation of
Basic and/or Executive
Projects for
Construction Works
11 2
9
Acquisition of
BIM Software 12 N/
A
Contracting
BIM courses 24 N/
A
Technical
Assistance for Contract
Supervision
1 N/
A
No relation 0 N/
TOTAL NET INCOME 20
Source - Own elaboration
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
33
It is necessary to define some classifications adopted. First, "Not applicable" refers
to those notices whose object did not provide for BIM engineering works or services, but
which returned as results due to the spelling of certain terms. This is explained below. The
three (3) notices unrelated to BIM actually provided for the contracting of lighting services
involving a device called "BIM MOVING." This is therefore a lighting device and has no
relation to the subject matter under study.
In addition, public notices corresponding to the subjects "Acquisition of BIM
Software," "Contracting of BIM Courses," and "Technical Assistance for Contract
Supervision" were not considered as net results, since they did not actually involve the
contracting of engineering works or services. Thus, only public notices whose object
provided for the Preparation of Basic and/or Executive Projects for Construction Works were
considered for analysis.
Finally, the exclusions made in relation to the object "Preparation of Basic and/or
Executive Projects for Construction" must be justified. In total, there were five exclusions,
one due to the absence of the respective public notice in the PNCP, three due to duplicate
results, and one due to the absence of the necessary information in the document available in
the PNCP.
In this sense, based on the search carried out in the PNCP, 20 (twenty) notices were
effectively analyzed. To broaden the sample field of this study, we opted to search for BIM
notices in the state of Santa Catarina.
The choice of this federal entity is justified by its already consolidated state action
on the subject. In 2015, the Santa Catarina BIM Laboratory was created, the first in Brazil,
with the aim of developing case studies to maximize the potential gains from the use of BIM
methodology (BRASIL, 2022, p. 8). These studies resulted in the BIM Project Specification
Notebooks, BIM and CAD Project Requirements, and the BIM Project Presentation
______________________________________________________________________________
Copyleft – Ius Publicum
33
It is necessary to define some classifications adopted. First, "Not applicable" refers
to those notices whose object did not provide for BIM engineering works or services, but
which returned as results due to the spelling of certain terms. This is explained below. The
three (3) notices unrelated to BIM actually provided for the contracting of lighting services
involving a device called "BIM MOVING." This is therefore a lighting device and has no
relation to the subject matter under study.
In addition, public notices corresponding to the subjects "Acquisition of BIM
Software," "Contracting of BIM Courses," and "Technical Assistance for Contract
Supervision" were not considered as net results, since they did not actually involve the
contracting of engineering works or services. Thus, only public notices whose object
provided for the Preparation of Basic and/or Executive Projects for Construction Works were
considered for analysis.
Finally, the exclusions made in relation to the object "Preparation of Basic and/or
Executive Projects for Construction" must be justified. In total, there were five exclusions,
one due to the absence of the respective public notice in the PNCP, three due to duplicate
results, and one due to the absence of the necessary information in the document available in
the PNCP.
In this sense, based on the search carried out in the PNCP, 20 (twenty) notices were
effectively analyzed. To broaden the sample field of this study, we opted to search for BIM
notices in the state of Santa Catarina.
The choice of this federal entity is justified by its already consolidated state action
on the subject. In 2015, the Santa Catarina BIM Laboratory was created, the first in Brazil,
with the aim of developing case studies to maximize the potential gains from the use of BIM
methodology (BRASIL, 2022, p. 8). These studies resulted in the BIM Project Specification
Notebooks, BIM and CAD Project Requirements, and the BIM Project Presentation
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
34
Notebook65 , all already in their second version and being updated for the third. In addition,
in 2021, through State Decree No. 1.370/2021, the State established the State Strategy for the
Implementation and Dissemination of BIM in Santa Catarina (BIM SC Strategy).
However, since 2014, the State has already been implementing BIM contracting,
publishing five public notices since then, four for projects and one for the execution of works.
All were found on the BIMSC website, under the tab “Editais BIM SC” (BIM SC Public
Notices)66 . Thus, these five public notices were analyzed for the purposes of this research.
This brings the total number of BIM contracting public notices analyzed to twenty-five.
Having clarified the data collection methodology, we will now describe the activities
undertaken in the data observation stage, in order to then list the quantitative and qualitative
inferences.
The data was observed by analyzing the content of the documents downloaded via
PNCP and the BIMSC Portal, which were Public Notices and/or Terms of Reference. Thus,
first, we analyzed (i) the type of contract; then, (ii) the evaluation criteria adopted; and
finally, we searched for the terms “technical qualification,” “technical expertise,” and
“technical capacity” in order to extract the (iii) technical requirements demanded of bidders.
Using this methodology, it was possible to make quantitative and qualitative inferences,
which are demonstrated below.
5. QUANTITATIVE RESULTS
As mentioned above, we first analyzed the (i) type of contract; then, the (ii)
evaluation criteria adopted; and, finally, the (iii) technical requirements demanded of
bidders.
65 Available at: https://www.bim.sc.gov.br/cadernos-bim
66 https://www.bim.sc.gov.br/editais-bim
______________________________________________________________________________
Copyleft – Ius Publicum
34
Notebook65 , all already in their second version and being updated for the third. In addition,
in 2021, through State Decree No. 1.370/2021, the State established the State Strategy for the
Implementation and Dissemination of BIM in Santa Catarina (BIM SC Strategy).
However, since 2014, the State has already been implementing BIM contracting,
publishing five public notices since then, four for projects and one for the execution of works.
All were found on the BIMSC website, under the tab “Editais BIM SC” (BIM SC Public
Notices)66 . Thus, these five public notices were analyzed for the purposes of this research.
This brings the total number of BIM contracting public notices analyzed to twenty-five.
Having clarified the data collection methodology, we will now describe the activities
undertaken in the data observation stage, in order to then list the quantitative and qualitative
inferences.
The data was observed by analyzing the content of the documents downloaded via
PNCP and the BIMSC Portal, which were Public Notices and/or Terms of Reference. Thus,
first, we analyzed (i) the type of contract; then, (ii) the evaluation criteria adopted; and
finally, we searched for the terms “technical qualification,” “technical expertise,” and
“technical capacity” in order to extract the (iii) technical requirements demanded of bidders.
Using this methodology, it was possible to make quantitative and qualitative inferences,
which are demonstrated below.
5. QUANTITATIVE RESULTS
As mentioned above, we first analyzed the (i) type of contract; then, the (ii)
evaluation criteria adopted; and, finally, the (iii) technical requirements demanded of
bidders.
65 Available at: https://www.bim.sc.gov.br/cadernos-bim
66 https://www.bim.sc.gov.br/editais-bim
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
35
Regarding the type of contract for the 25 (twenty-five) public notices analyzed, the
following types were adopted: (i) competitive bidding, (ii) electronic auction, (iii) direct
contracting due to exemption based on value, (iv) direct contracting due to non-
enforceability, (v) RDC, and (vi) price quotation (the latter two only in relation to public
notices in Santa Catarina, since they date from a period prior to the enactment of Law No.
14.133/2021).
Direct contracting by waiver due to value prevailed, based on Article 75, item I, of
Law No. 14.133/2021, totaling 13 (thirteen) public notices. Secondly, the Competition
modality was adopted by five (5) public notices, followed by electronic auction (three, 3);
RDC and Price Collection, both with two (2) public notices each. See the chart below:
Graph 1
Source - Own elaboration
The prevailing contracting modality (exemption by value) also influenced the
number in relation to the evaluation criteria used. Of the 25 (twenty-five) public notices
analyzed, only 4 (four) adopted the Technical and Price criteria, while 21 (twenty-one) opted
for the Lowest Price criterion.
Competitive
20%
Electronic
auction
12%
Exemption by
value
52%
RDC
8%
Price quotation
8%
TYPE OF CONTRACT
______________________________________________________________________________
Copyleft – Ius Publicum
35
Regarding the type of contract for the 25 (twenty-five) public notices analyzed, the
following types were adopted: (i) competitive bidding, (ii) electronic auction, (iii) direct
contracting due to exemption based on value, (iv) direct contracting due to non-
enforceability, (v) RDC, and (vi) price quotation (the latter two only in relation to public
notices in Santa Catarina, since they date from a period prior to the enactment of Law No.
14.133/2021).
Direct contracting by waiver due to value prevailed, based on Article 75, item I, of
Law No. 14.133/2021, totaling 13 (thirteen) public notices. Secondly, the Competition
modality was adopted by five (5) public notices, followed by electronic auction (three, 3);
RDC and Price Collection, both with two (2) public notices each. See the chart below:
Graph 1
Source - Own elaboration
The prevailing contracting modality (exemption by value) also influenced the
number in relation to the evaluation criteria used. Of the 25 (twenty-five) public notices
analyzed, only 4 (four) adopted the Technical and Price criteria, while 21 (twenty-one) opted
for the Lowest Price criterion.
Competitive
20%
Electronic
auction
12%
Exemption by
value
52%
RDC
8%
Price quotation
8%
TYPE OF CONTRACT
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
36
Graph 2
Source - Own elaboration
When analyzing the evaluation criteria by type of contract, it is noted that the
adoption of Technique and Price predominates in Price Collection notices (prior to Law No.
14.133/2021), and is also adopted in one (1) RDC and one (1) Competition. The lowest price
prevails in the notices of Exemption by value (13), Electronic Auction (3), and Competition
(4).
Graph 3
Lowest Price
84%
Technical and
Price
16%
JUDGING CRITERIA
______________________________________________________________________________
Copyleft – Ius Publicum
36
Graph 2
Source - Own elaboration
When analyzing the evaluation criteria by type of contract, it is noted that the
adoption of Technique and Price predominates in Price Collection notices (prior to Law No.
14.133/2021), and is also adopted in one (1) RDC and one (1) Competition. The lowest price
prevails in the notices of Exemption by value (13), Electronic Auction (3), and Competition
(4).
Graph 3
Lowest Price
84%
Technical and
Price
16%
JUDGING CRITERIA
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
37
Source - Own elaboration
These figures are in accordance with the legal provisions of Law No. 14.133/2021,
which, in its Article 6, item XXXVIII, provides for the possibility of adopting, in the
Competition modality, the criteria of lowest price (item "a") and technical and price (item
"c"), among others. Similarly, it establishes that the Auction modality shall adopt the criterion
of lowest price or highest discount (Article 6, item XLI).
Despite the adoption of technical criteria and lower prices, it was observed that only
seven (7) public notices did not include technical qualification requirements related to BIM.
In other words, eighteen (18) public notices, including those whose evaluation criteria were
based on the lowest price, included some technical qualification requirements, whether
operational and/or professional, related to BIM.
In addition, six arrangements were noted regarding technical requirements: (i)
Technical-Operational Capacity and Technical-Professional Capacity (5; 28%); (ii)
Technical-Operational Capacity or Technical-Professional Capacity (1; 6%); (iii) Technical-
Operational Capacity only (3; 17%); (iv) Technical-Professional Capacity only (5; 28%); (v)
Technical-Professional Capacity as Qualification and Judgment Criterion (2; 11%); and (vi)
Technical-Professional Capacity as Judgment Criterion only (2; 11%). The chart below
shows the quantities:
4
3
13
1
0
1
0
0
1
2
0 2 4 6 8 10 12 14
Competition
Electronic auction
Exemption by value
RDC
Price quotation
Judging criteria by contract type
Lowest price Technical and Price
______________________________________________________________________________
Copyleft – Ius Publicum
37
Source - Own elaboration
These figures are in accordance with the legal provisions of Law No. 14.133/2021,
which, in its Article 6, item XXXVIII, provides for the possibility of adopting, in the
Competition modality, the criteria of lowest price (item "a") and technical and price (item
"c"), among others. Similarly, it establishes that the Auction modality shall adopt the criterion
of lowest price or highest discount (Article 6, item XLI).
Despite the adoption of technical criteria and lower prices, it was observed that only
seven (7) public notices did not include technical qualification requirements related to BIM.
In other words, eighteen (18) public notices, including those whose evaluation criteria were
based on the lowest price, included some technical qualification requirements, whether
operational and/or professional, related to BIM.
In addition, six arrangements were noted regarding technical requirements: (i)
Technical-Operational Capacity and Technical-Professional Capacity (5; 28%); (ii)
Technical-Operational Capacity or Technical-Professional Capacity (1; 6%); (iii) Technical-
Operational Capacity only (3; 17%); (iv) Technical-Professional Capacity only (5; 28%); (v)
Technical-Professional Capacity as Qualification and Judgment Criterion (2; 11%); and (vi)
Technical-Professional Capacity as Judgment Criterion only (2; 11%). The chart below
shows the quantities:
4
3
13
1
0
1
0
0
1
2
0 2 4 6 8 10 12 14
Competition
Electronic auction
Exemption by value
RDC
Price quotation
Judging criteria by contract type
Lowest price Technical and Price
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
38
Graph 4
Source - Own elaboration
It can therefore be seen that there is a prevalence of both the requirement to prove
Technical-Operational and Technical-Professional Capacity (5; 28%) and only Technical-
Professional Capacity (5; 28%). Secondly, there is a requirement for Technical-Operational
Capacity only (3; 17%), followed by requirements for Technical-Professional Capacity both
as a Qualification and/or Judgment Criterion for technical proposals (2; 11%, each). Finally,
only one (1) public notice provided for the alternative between Technical-Operational and
Technical-Professional Capacity.
28%
5%
17%
28%
11%
11%
Technical Capacity Arrangements
Technical-Operational Capacity and Technical-Professional Capacity
Technical-Operational Capacity or Technical-Professional Capacity
Technical-Operational Capacity only
Technical-Professional Capacity only
Technical-Professional Capacity as Qualification and Judgment Criterion
Technical-Professional Capacity as Judgment Criteria only
______________________________________________________________________________
Copyleft – Ius Publicum
38
Graph 4
Source - Own elaboration
It can therefore be seen that there is a prevalence of both the requirement to prove
Technical-Operational and Technical-Professional Capacity (5; 28%) and only Technical-
Professional Capacity (5; 28%). Secondly, there is a requirement for Technical-Operational
Capacity only (3; 17%), followed by requirements for Technical-Professional Capacity both
as a Qualification and/or Judgment Criterion for technical proposals (2; 11%, each). Finally,
only one (1) public notice provided for the alternative between Technical-Operational and
Technical-Professional Capacity.
28%
5%
17%
28%
11%
11%
Technical Capacity Arrangements
Technical-Operational Capacity and Technical-Professional Capacity
Technical-Operational Capacity or Technical-Professional Capacity
Technical-Operational Capacity only
Technical-Professional Capacity only
Technical-Professional Capacity as Qualification and Judgment Criterion
Technical-Professional Capacity as Judgment Criteria only
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
39
Given these figures, it is important to understand the content of such technical
requirements in order to assess what is being requested from bidders and to establish
parameters and limits. This is what will be demonstrated in the qualitative inferences.
6. QUALITATIVE RESULTS
At this point, we will analyze the main qualitative inferences observed. The
objective of this analysis is to understand how federal agencies and entities have been
assessing the technical capacity of bidders in relation to BIM.
To this end, the requirements regarding Technical-Operational Capacity and
Technical-Professional Capacity will be evaluated. Subsequently, in those notices where the
criterion adopted was Technical and Price, the requirements related to BIM will be analyzed
as part of the bidder's Technical Score.
6.1. Technical-Operational Capacity
From the analysis undertaken, three (3) groups of requirements were observed
regarding Technical and Operational Capacity, namely: (i) Project development in specific
sectors, with a minimum area (5; 56%); (ii) Project development in specific sectors with a
minimum area and BIM project coordination (3; 33%); and (iii) Project development in a
specific sector, with no minimum area (1; 11%). Below is a graphical representation of the
findings:
Graph 5
______________________________________________________________________________
Copyleft – Ius Publicum
39
Given these figures, it is important to understand the content of such technical
requirements in order to assess what is being requested from bidders and to establish
parameters and limits. This is what will be demonstrated in the qualitative inferences.
6. QUALITATIVE RESULTS
At this point, we will analyze the main qualitative inferences observed. The
objective of this analysis is to understand how federal agencies and entities have been
assessing the technical capacity of bidders in relation to BIM.
To this end, the requirements regarding Technical-Operational Capacity and
Technical-Professional Capacity will be evaluated. Subsequently, in those notices where the
criterion adopted was Technical and Price, the requirements related to BIM will be analyzed
as part of the bidder's Technical Score.
6.1. Technical-Operational Capacity
From the analysis undertaken, three (3) groups of requirements were observed
regarding Technical and Operational Capacity, namely: (i) Project development in specific
sectors, with a minimum area (5; 56%); (ii) Project development in specific sectors with a
minimum area and BIM project coordination (3; 33%); and (iii) Project development in a
specific sector, with no minimum area (1; 11%). Below is a graphical representation of the
findings:
Graph 5
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
40
Source - Own elaboration
The prevailing group, (i) Project design in specific sectors, with a minimum area,
corresponds to the clauses in the tender notice on the technical qualification of bidders, which
required proof, through the presentation of certificates in the name of the bidding company,
of the design of sectoral projects, such as architectural, structural, electrical, and hydro-
sanitary projects, designed in BIM, in a minimum area equal to or greater than a certain
percentage of the area to be tendered. An example is provided below.
The Public Notice of Competition held by the City Council of Candói/PR67 required,
as specific technical qualification on BIM, proof of technical and operational capacity
through certificates involving the preparation and execution of renovation and expansion
projects using BIM technology, of at least 350 m2 of masonry construction. The Direct
Contracting Notice for exemption due to value, issued by CODEVASF - Alagoas68 , also
67 Contracting a company specialized in architecture or engineering to prepare projects and budget spreadsheets for
the renovation and expansion of the City Council headquarters building using BIM technology, and monitoring the
execution.
68 Contracting of engineering services for the preparation of a basic project for a jabuticaba-based fermented
beverage agroindustry, using BIM methodology, for the Mixed Cooperative for Peasant Production and Marketing
of the State of Alagoas (COOPCAM), located in the municipality of Palmeira dos Índios, in the state of Alagoas.
56%33%
11%
Technical and Operational Capacity
Project development in specific sectors, with minimum area
Project development in specific sectors, with minimum area and BIM project coordination
Project design in specific sectors, with no minimum area
______________________________________________________________________________
Copyleft – Ius Publicum
40
Source - Own elaboration
The prevailing group, (i) Project design in specific sectors, with a minimum area,
corresponds to the clauses in the tender notice on the technical qualification of bidders, which
required proof, through the presentation of certificates in the name of the bidding company,
of the design of sectoral projects, such as architectural, structural, electrical, and hydro-
sanitary projects, designed in BIM, in a minimum area equal to or greater than a certain
percentage of the area to be tendered. An example is provided below.
The Public Notice of Competition held by the City Council of Candói/PR67 required,
as specific technical qualification on BIM, proof of technical and operational capacity
through certificates involving the preparation and execution of renovation and expansion
projects using BIM technology, of at least 350 m2 of masonry construction. The Direct
Contracting Notice for exemption due to value, issued by CODEVASF - Alagoas68 , also
67 Contracting a company specialized in architecture or engineering to prepare projects and budget spreadsheets for
the renovation and expansion of the City Council headquarters building using BIM technology, and monitoring the
execution.
68 Contracting of engineering services for the preparation of a basic project for a jabuticaba-based fermented
beverage agroindustry, using BIM methodology, for the Mixed Cooperative for Peasant Production and Marketing
of the State of Alagoas (COOPCAM), located in the municipality of Palmeira dos Índios, in the state of Alagoas.
56%33%
11%
Technical and Operational Capacity
Project development in specific sectors, with minimum area
Project development in specific sectors, with minimum area and BIM project coordination
Project design in specific sectors, with no minimum area
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
41
required the presentation of Certificate(s) or Attestation(s) of technical capacity, in the name
of the company, proving that the bidder had performed BIM services for the preparation of
architectural, structural, electrical, and plumbing designs in a minimum area of 50 m2 in each
project.
Similarly, the Direct Contracting notice issued by the National Foundation for
Indigenous Peoples69 provided that the technical and operational capacity of the bidding
company must be proven by a certificate, declaration, or attestation proving the preparation
of an architectural project for building renovation, prepared using BIM methodology, with a
minimum area of 65 m2 , corresponding to approximately 10% of the estimated area of the
subject matter of the tender, proven by means of a single certificate. In this specific case, it
is worth noting that the BIM requirement was alternative, i.e., the bidder could submit a
certificate of preparation of an architectural design for building renovation work without BIM
methodology, provided that, in this case, the minimum area was 327 m²(50% of the area to be
tendered), which could be proven by means of one or more certificates. Therefore, it can be
seen that the requirements relating to BIM methodology are more measured and moderate.
The subsequent group, (ii) Project design in specific sectors with minimum area and
BIM project coordination, is similar to the first group in that it provides for the design of
projects with minimum areas, but also includes in the technical and operational capacity the
proof of BIM project coordination services.
69 Contracting of specialized technical services for the preparation of basic and executive architectural and
engineering designs, developed and compatible with the BIM platform, including: approval and obtaining of licenses
from the competent authorities, list and specifications of materials, descriptive reports, specifications, calculation
reports, physical and financial schedule, and complete budgeting in accordance with Decree No. 7,983/2013, to
enable the contracting of renovation, adaptation, modernization, and possible expansion of the property that houses
the facilities of Funai - Regional Coordination of João Pessoa - CR-JPA
______________________________________________________________________________
Copyleft – Ius Publicum
41
required the presentation of Certificate(s) or Attestation(s) of technical capacity, in the name
of the company, proving that the bidder had performed BIM services for the preparation of
architectural, structural, electrical, and plumbing designs in a minimum area of 50 m2 in each
project.
Similarly, the Direct Contracting notice issued by the National Foundation for
Indigenous Peoples69 provided that the technical and operational capacity of the bidding
company must be proven by a certificate, declaration, or attestation proving the preparation
of an architectural project for building renovation, prepared using BIM methodology, with a
minimum area of 65 m2 , corresponding to approximately 10% of the estimated area of the
subject matter of the tender, proven by means of a single certificate. In this specific case, it
is worth noting that the BIM requirement was alternative, i.e., the bidder could submit a
certificate of preparation of an architectural design for building renovation work without BIM
methodology, provided that, in this case, the minimum area was 327 m²(50% of the area to be
tendered), which could be proven by means of one or more certificates. Therefore, it can be
seen that the requirements relating to BIM methodology are more measured and moderate.
The subsequent group, (ii) Project design in specific sectors with minimum area and
BIM project coordination, is similar to the first group in that it provides for the design of
projects with minimum areas, but also includes in the technical and operational capacity the
proof of BIM project coordination services.
69 Contracting of specialized technical services for the preparation of basic and executive architectural and
engineering designs, developed and compatible with the BIM platform, including: approval and obtaining of licenses
from the competent authorities, list and specifications of materials, descriptive reports, specifications, calculation
reports, physical and financial schedule, and complete budgeting in accordance with Decree No. 7,983/2013, to
enable the contracting of renovation, adaptation, modernization, and possible expansion of the property that houses
the facilities of Funai - Regional Coordination of João Pessoa - CR-JPA
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
42
This is the case of the public tender notice issued by the Municipality of
Londrina/PR70 , which included the following requirement in item 5.3:
Atestado de capacidade técnica operacional emitido em nome da empresa licitante,
referentes a objetos similares ao licitado, admitido o somatório, desde que em período
concomitante, que comprove:
[...]
Elaboração de projeto arquitetônico de edificação em BIM com área igual ou
superior a 550m²;
Elaboração de projeto de estruturas de concreto armado (moldado in loco,
protendido e/ou pré-moldado), em BIM, de edificação com área igual ou superior a 550m2;
Elaboração de projeto de estruturas metálicas para cobertura de edificação, em
BIM, com área igual ou superior a 200m2;
Elaboração de projeto de instalações elétricas para edificação, em BIM, com área
igual ou superior a 550m2 e que contenha entrada de energia em média/alta tensão;
Coordenação/compatibilização de projetos em BIM de edificação com área igual
ou superior a 550m2.
The same was true of the direct contract award notice issued by the Municipality of
Belo Horizonte/MG, which required bidders to prove, by means of a technical and
operational capacity certificate, that they had executed/prepared a structural building design
using BIM modeling for a minimum area of 1,200m2 , in addition to the coordination of
building projects using BIM modeling.
70 Contracting of engineering projects and services, modeled in BIM, for the renovation and expansion of the
Malvina Poppi Pedrialli CMEI.
______________________________________________________________________________
Copyleft – Ius Publicum
42
This is the case of the public tender notice issued by the Municipality of
Londrina/PR70 , which included the following requirement in item 5.3:
Atestado de capacidade técnica operacional emitido em nome da empresa licitante,
referentes a objetos similares ao licitado, admitido o somatório, desde que em período
concomitante, que comprove:
[...]
Elaboração de projeto arquitetônico de edificação em BIM com área igual ou
superior a 550m²;
Elaboração de projeto de estruturas de concreto armado (moldado in loco,
protendido e/ou pré-moldado), em BIM, de edificação com área igual ou superior a 550m2;
Elaboração de projeto de estruturas metálicas para cobertura de edificação, em
BIM, com área igual ou superior a 200m2;
Elaboração de projeto de instalações elétricas para edificação, em BIM, com área
igual ou superior a 550m2 e que contenha entrada de energia em média/alta tensão;
Coordenação/compatibilização de projetos em BIM de edificação com área igual
ou superior a 550m2.
The same was true of the direct contract award notice issued by the Municipality of
Belo Horizonte/MG, which required bidders to prove, by means of a technical and
operational capacity certificate, that they had executed/prepared a structural building design
using BIM modeling for a minimum area of 1,200m2 , in addition to the coordination of
building projects using BIM modeling.
70 Contracting of engineering projects and services, modeled in BIM, for the renovation and expansion of the
Malvina Poppi Pedrialli CMEI.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
43
The notice of the Electronic Auction undertaken by the Regional Superintendence
of the Federal Police in Rio Grande do Sul71 also required the bidding company to prove its
technical and economic qualification to perform services for the preparation of executive
architectural, structural, electrical, and hydro-sanitary projects, all executed according to
BIM (Building Information Modeling) methodology, in buildings with a minimum area of
245.00 m² (two hundred and forty-five square meters), i.e., equivalent to approximately 25%
(twenty-five percent) of the planned built area, in addition to the general coordination of the
aforementioned projects.
Finally, there is group (iii) Project development in a specific sector, with no
minimum area, consisting of only one (1) public notice. In this case, the public notice only
required the tion of technical qualification through certificates proving that the specialized
company or professional had provided services in executive architectural design using BIM.
In this case, no minimum area was specified. In addition, this public notice is the same as the
one that provided for proof of technical-operational or technical-professional capacity, with
the same requirement for each.
Thus, bidding companies could either prove their technical-operational capacity or
their technical-professional capacity, provided that they submitted the respective certificate
with the above-mentioned specifications.
6.2. Technical-Professional Capacity
From the analysis undertaken, five (5) groups of requirements were observed
regarding Technical-Professional Capacity, namely: (i) Project development in specific
sectors, with no minimum area (6; 46%); (ii) Project development in specific sectors, with
no minimum area, and BIM project coordination (1; 7%); (iii) Project development in specific
71 Provision of basic and executive project design services, using BIM (Building Information Modeling)
methodology, for the Nautical Base of the Special Maritime Police Unit of the Federal Police Station in Rio Grande
do Sul - NEPOM/DPF/RGE/RS.
______________________________________________________________________________
Copyleft – Ius Publicum
43
The notice of the Electronic Auction undertaken by the Regional Superintendence
of the Federal Police in Rio Grande do Sul71 also required the bidding company to prove its
technical and economic qualification to perform services for the preparation of executive
architectural, structural, electrical, and hydro-sanitary projects, all executed according to
BIM (Building Information Modeling) methodology, in buildings with a minimum area of
245.00 m² (two hundred and forty-five square meters), i.e., equivalent to approximately 25%
(twenty-five percent) of the planned built area, in addition to the general coordination of the
aforementioned projects.
Finally, there is group (iii) Project development in a specific sector, with no
minimum area, consisting of only one (1) public notice. In this case, the public notice only
required the tion of technical qualification through certificates proving that the specialized
company or professional had provided services in executive architectural design using BIM.
In this case, no minimum area was specified. In addition, this public notice is the same as the
one that provided for proof of technical-operational or technical-professional capacity, with
the same requirement for each.
Thus, bidding companies could either prove their technical-operational capacity or
their technical-professional capacity, provided that they submitted the respective certificate
with the above-mentioned specifications.
6.2. Technical-Professional Capacity
From the analysis undertaken, five (5) groups of requirements were observed
regarding Technical-Professional Capacity, namely: (i) Project development in specific
sectors, with no minimum area (6; 46%); (ii) Project development in specific sectors, with
no minimum area, and BIM project coordination (1; 7%); (iii) Project development in specific
71 Provision of basic and executive project design services, using BIM (Building Information Modeling)
methodology, for the Nautical Base of the Special Maritime Police Unit of the Federal Police Station in Rio Grande
do Sul - NEPOM/DPF/RGE/RS.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
44
sectors, with minimum area (4; 31%); (iv) Project development in specific sectors, with
minimum area and BIM project coordination (1; 8%); and (v) Technical aptitude in handling
software that uses BIM (1; 8%). Below is a graphical representation of the findings:
Graph 6
Source - Own elaboration
The prevailing group, (i) Project development in specific sectors, with no minimum
area, corresponds to the clauses in the tender notice on the technical qualification of bidders,
which required proof, through the presentation of certificates in the name of the technical
team professional, of the development of sectoral projects, such as architectural, structural,
electrical, and plumbing projects developed in BIM, without the requirement of a minimum
area equal to or greater than a certain percentage of the area to be tendered. An example is
provided below.
46%
7%
31%
8%8%
Technical and Professional Skills
Project development in specific sectors, with no minimum area
Project development in specific sectors, with no minimum area, and BIM project coordination
Project design in specific sectors, with minimum area
Project design in specific sectors, with minimum area and BIM project coordination
Technical aptitude in handling software that uses BIM
______________________________________________________________________________
Copyleft – Ius Publicum
44
sectors, with minimum area (4; 31%); (iv) Project development in specific sectors, with
minimum area and BIM project coordination (1; 8%); and (v) Technical aptitude in handling
software that uses BIM (1; 8%). Below is a graphical representation of the findings:
Graph 6
Source - Own elaboration
The prevailing group, (i) Project development in specific sectors, with no minimum
area, corresponds to the clauses in the tender notice on the technical qualification of bidders,
which required proof, through the presentation of certificates in the name of the technical
team professional, of the development of sectoral projects, such as architectural, structural,
electrical, and plumbing projects developed in BIM, without the requirement of a minimum
area equal to or greater than a certain percentage of the area to be tendered. An example is
provided below.
46%
7%
31%
8%8%
Technical and Professional Skills
Project development in specific sectors, with no minimum area
Project development in specific sectors, with no minimum area, and BIM project coordination
Project design in specific sectors, with minimum area
Project design in specific sectors, with minimum area and BIM project coordination
Technical aptitude in handling software that uses BIM
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
45
The same tender notice issued by the City Council of Candói/PR mentioned above
required proof, through a Technical Collection Certificate (CAT) in the name of the technical
manager presented, that the latter had been responsible for the same service required for
Technical-Operational Capacity (preparation and execution of renovation and expansion
projects using BIM technology). However, it expressly stated that, in this case, proof of the
minimum quantity (minimum building area) was not required.
Also, the Direct Contracting Notice for exemption due to value, issued by
CODEVASF - Alagoas, when requiring the bidder to prove, through the presentation of a
CAT, that it has on its permanent professional staff someone who has performed services
related to the preparation of basic designs for residential, commercial, or business projects
using BIM methodology, including architectural, structural, electrical, and plumbing designs
and budgeting. This is the same requirement for Technical-Operational Capacity, except that,
in this case, no minimum area to be proven was required.
Similarly, the Direct Contracting Notices for exemption by the Municipality of
Itagibá/BA, both those issued in December 2022 and January 2023, only required proof of a
professional member of the company's technical staff who had carried out a basic or
executive architectural project (or other specialties) using BIM technology. In this case, no
minimum area was specified, only that the size of the building be compatible with the object
to be tendered, providing a broad estimate.
The second group, (ii) Project development in specific sectors, with no minimum
area, and BIM project coordination, consists of only one (1) public notice, namely Direct
contracting by waiver for the amount, carried out by the Municipality of Belo Horizonte/MG,
requiring the bidder to prove that it had professionals on its staff who had executed/prepared
structural building designs using BIM modeling and coordinated building projects using BIM
modeling. Unlike the requirements for technical and operational capacity, there was no
minimum area requirement of 1,200 m².
The third group, and the second in prevalence, (iii) Project development in specific
sectors, with a minimum area, corresponds to public notices whose technical-professional
______________________________________________________________________________
Copyleft – Ius Publicum
45
The same tender notice issued by the City Council of Candói/PR mentioned above
required proof, through a Technical Collection Certificate (CAT) in the name of the technical
manager presented, that the latter had been responsible for the same service required for
Technical-Operational Capacity (preparation and execution of renovation and expansion
projects using BIM technology). However, it expressly stated that, in this case, proof of the
minimum quantity (minimum building area) was not required.
Also, the Direct Contracting Notice for exemption due to value, issued by
CODEVASF - Alagoas, when requiring the bidder to prove, through the presentation of a
CAT, that it has on its permanent professional staff someone who has performed services
related to the preparation of basic designs for residential, commercial, or business projects
using BIM methodology, including architectural, structural, electrical, and plumbing designs
and budgeting. This is the same requirement for Technical-Operational Capacity, except that,
in this case, no minimum area to be proven was required.
Similarly, the Direct Contracting Notices for exemption by the Municipality of
Itagibá/BA, both those issued in December 2022 and January 2023, only required proof of a
professional member of the company's technical staff who had carried out a basic or
executive architectural project (or other specialties) using BIM technology. In this case, no
minimum area was specified, only that the size of the building be compatible with the object
to be tendered, providing a broad estimate.
The second group, (ii) Project development in specific sectors, with no minimum
area, and BIM project coordination, consists of only one (1) public notice, namely Direct
contracting by waiver for the amount, carried out by the Municipality of Belo Horizonte/MG,
requiring the bidder to prove that it had professionals on its staff who had executed/prepared
structural building designs using BIM modeling and coordinated building projects using BIM
modeling. Unlike the requirements for technical and operational capacity, there was no
minimum area requirement of 1,200 m².
The third group, and the second in prevalence, (iii) Project development in specific
sectors, with a minimum area, corresponds to public notices whose technical-professional
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
46
capacity would be proven by previous experience in project development linked to the
minimum area required, similar to that already detailed in Technical-Operational Capacity.
Examples include the Direct Contracting notices by waiver for the amount carried
out by the Regional Chemistry Council-IV Region of São Paulo72 and the Regional Council
of Engineering and Agronomy of Santa Catarina73 , which provided for proof of technical
and professional capacity through certificates in the name of the technical managers proving
the execution, completed or in progress, of architectural, structural, electrical, hydro-
sanitary, and fire prevention projects with an area equal to or greater than 50% (fifty percent)
of the area planned for the project that is the subject of each bid.
Similarly, two (2) public notices from Santa Catarina were classified in this group.
These are RDC No. 670/201474 and Price Request No. 11/201975 . The first required technical
team professionals to prove their experience in BIM development of architectural, structural,
and installation projects with a minimum area of 7,000 m² (76,220 ft²),corresponding to
approximately 25% of the tendered quantity. The second stipulated the same project
requirement, differing only in the area, which was3,300 m² (approximately 50% of the tendered
amount). On these occasions, there were no project coordination/management requirements.
Regarding the fourth group, (iv) Project design in specific sectors, with minimum
area and BIM project coordination, only one (1) public notice analyzed required projects
72 Contracting, without bidding, for the provision of services for the preparation of executive engineering and
architectural projects using BIM technology, budgets, descriptive reports, and construction schedules for the
retrofitting of the auditorium at the CRQ-IV headquarters.
73 Contracting of engineering and/or architecture company(ies) specialized in the preparation of executive
engineering and architecture projects using BIM technology, budgets, descriptive reports, and construction
schedules for the construction of a building for the CREA-SC Inspectorate in Videira-SC.
74 Contracting a specialized company for the preparation of the Legal Project and Executive Project for the New
Cardiology Institute of Santa Catarina using BUILDING INFORMATION MODELING (BIM) to be built in the
municipality of São José, SC.
75 Preparation of legal and executive project for the new building of the Santa Catarina Special Education Foundation
(FCEE), using building information modeling (BIM), to be built in the municipality of São José, SC.
______________________________________________________________________________
Copyleft – Ius Publicum
46
capacity would be proven by previous experience in project development linked to the
minimum area required, similar to that already detailed in Technical-Operational Capacity.
Examples include the Direct Contracting notices by waiver for the amount carried
out by the Regional Chemistry Council-IV Region of São Paulo72 and the Regional Council
of Engineering and Agronomy of Santa Catarina73 , which provided for proof of technical
and professional capacity through certificates in the name of the technical managers proving
the execution, completed or in progress, of architectural, structural, electrical, hydro-
sanitary, and fire prevention projects with an area equal to or greater than 50% (fifty percent)
of the area planned for the project that is the subject of each bid.
Similarly, two (2) public notices from Santa Catarina were classified in this group.
These are RDC No. 670/201474 and Price Request No. 11/201975 . The first required technical
team professionals to prove their experience in BIM development of architectural, structural,
and installation projects with a minimum area of 7,000 m² (76,220 ft²),corresponding to
approximately 25% of the tendered quantity. The second stipulated the same project
requirement, differing only in the area, which was3,300 m² (approximately 50% of the tendered
amount). On these occasions, there were no project coordination/management requirements.
Regarding the fourth group, (iv) Project design in specific sectors, with minimum
area and BIM project coordination, only one (1) public notice analyzed required projects
72 Contracting, without bidding, for the provision of services for the preparation of executive engineering and
architectural projects using BIM technology, budgets, descriptive reports, and construction schedules for the
retrofitting of the auditorium at the CRQ-IV headquarters.
73 Contracting of engineering and/or architecture company(ies) specialized in the preparation of executive
engineering and architecture projects using BIM technology, budgets, descriptive reports, and construction
schedules for the construction of a building for the CREA-SC Inspectorate in Videira-SC.
74 Contracting a specialized company for the preparation of the Legal Project and Executive Project for the New
Cardiology Institute of Santa Catarina using BUILDING INFORMATION MODELING (BIM) to be built in the
municipality of São José, SC.
75 Preparation of legal and executive project for the new building of the Santa Catarina Special Education Foundation
(FCEE), using building information modeling (BIM), to be built in the municipality of São José, SC.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
47
designed with a minimum area and BIM coordination. This refers to the Public Tender held
by the Municipality of Londrina, which required a certificate of technical and professional
capacity, issued in the name of the technical manager, allowing for the sum of certificates,
proving the preparation in BIM of architectural, structural, and electrical projects with a
minimum area of 550m2 , in addition to the coordination of projects in BIM in buildings with
an area equal to or greater than 550m2 .
Finally, the fifth group, (v) Technical aptitude in handling software that uses BIM,
only required professionals to prove technical aptitude in handling software or tools that use
the Building Information Modeling (BIM) methodology, through certificates and/or
attestations issued by public or private companies accredited by their respective councils,
without further requirements. This was the case in the Electronic Auction held by the
Municipality of Itagibá in April 202376 .
Finally, having outlined how BIM is being required in Technical-Professional
Capacity, we will now analyze how technical capacities are integrated into the technical score
in those public notices whose evaluation criteria were Technical and Price.
6.3. Technical Capacity in the Composition of the Technical Score
Firstly, it is worth noting the presence of four (4) public notices whose evaluation
criteria were based on Technical and Price in the public notices analyzed. These are: Public
Tender No. 17/2023 – Municipality of Atibaia/SP; RDC No. 670/2014 - State of Santa
Catarina; Price Collection No. 11/2019 - State of Santa Catarina/Catarinense Foundation for
76 Contracting of an engineering and urban planning company specialized in the provision of technical services for
the preparation of architectural and urban planning projects, executive and complementary projects compatible with
BIM methodology, parameterized budgeting, and 3D electronic models. Including technical documents, technical
specifications, descriptive report, preliminary technical study, quantity and cost spreadsheets, unit service cost
composition spreadsheets, calculation report, and physical and financial schedule for the works, and other technical
documents of interest to the Administration, for the works in the municipality of Itagibá.
______________________________________________________________________________
Copyleft – Ius Publicum
47
designed with a minimum area and BIM coordination. This refers to the Public Tender held
by the Municipality of Londrina, which required a certificate of technical and professional
capacity, issued in the name of the technical manager, allowing for the sum of certificates,
proving the preparation in BIM of architectural, structural, and electrical projects with a
minimum area of 550m2 , in addition to the coordination of projects in BIM in buildings with
an area equal to or greater than 550m2 .
Finally, the fifth group, (v) Technical aptitude in handling software that uses BIM,
only required professionals to prove technical aptitude in handling software or tools that use
the Building Information Modeling (BIM) methodology, through certificates and/or
attestations issued by public or private companies accredited by their respective councils,
without further requirements. This was the case in the Electronic Auction held by the
Municipality of Itagibá in April 202376 .
Finally, having outlined how BIM is being required in Technical-Professional
Capacity, we will now analyze how technical capacities are integrated into the technical score
in those public notices whose evaluation criteria were Technical and Price.
6.3. Technical Capacity in the Composition of the Technical Score
Firstly, it is worth noting the presence of four (4) public notices whose evaluation
criteria were based on Technical and Price in the public notices analyzed. These are: Public
Tender No. 17/2023 – Municipality of Atibaia/SP; RDC No. 670/2014 - State of Santa
Catarina; Price Collection No. 11/2019 - State of Santa Catarina/Catarinense Foundation for
76 Contracting of an engineering and urban planning company specialized in the provision of technical services for
the preparation of architectural and urban planning projects, executive and complementary projects compatible with
BIM methodology, parameterized budgeting, and 3D electronic models. Including technical documents, technical
specifications, descriptive report, preliminary technical study, quantity and cost spreadsheets, unit service cost
composition spreadsheets, calculation report, and physical and financial schedule for the works, and other technical
documents of interest to the Administration, for the works in the municipality of Itagibá.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
48
Special Education and Price Collection No. 015/2020 – State of Santa Catarina/State
Secretariat of Public Security.
Public Tender No. 17/2023 - Municipality of Atibaia/SP, whose object is the
contracting of specialized technical services for the preparation of architectural, engineering,
and legal projects approved with development on a BIM (BUILDING INFORMATION
MODELING) for the construction of the new “Campus Atibaia” composed of FATEC de
Atibaia and Etec Carmine Biagio Tundisi, provided for the evaluation of the Technical
Proposal based on three (3) scores - NT1, NT2, and NT3. NT2 dealt specifically with the
Organization of the Technical Team and was the only technical score to include technical
requirements related to Building Information Modeling.
The requirements relate to (i) the technical and professional qualifications of Sector
Coordinator 1, who must be a professional architect with a degree in architecture and
experience as a technical manager in the execution of executive design services for
public/private buildings using BIM methodology; and (ii) the technical and operational
capacity of the company, proven by certificates on behalf of the company for the design of
public/private buildings using BIM methodology.
The tender did not require a minimum number of certificates, nor did it consider
them mandatory. The submission of such certificates was qualifying, comprising the bidder's
technical score according to the number of certificates submitted. Thus, in the case of
technical and professional capacity, it would be scored as follows: ≥ 3 certificates = 6.0 2
certificates = 4.0 points 1 certificate = 2.0 points 0 certificates = 0 points. In the case of
technical-operational capacity, the scoring would follow the following scale: 2 certificates =
6.0 points 1 certificate = 2.0 points 0 certificates = 0 points.
Next, based on the analysis of RDC No. 670/2014 – State of Santa Catarina, with
the objective of hiring a specialized company for the Preparation of the Legal Project and
Executive Project for the New Cardiology Institute of Santa Catarina using Building
Information Modeling (BIM) to be built in the Municipality of São José -SC, it was noted
that the Technical Note would be composed of NFCET and NFBIM, respectively. Final Score
______________________________________________________________________________
Copyleft – Ius Publicum
48
Special Education and Price Collection No. 015/2020 – State of Santa Catarina/State
Secretariat of Public Security.
Public Tender No. 17/2023 - Municipality of Atibaia/SP, whose object is the
contracting of specialized technical services for the preparation of architectural, engineering,
and legal projects approved with development on a BIM (BUILDING INFORMATION
MODELING) for the construction of the new “Campus Atibaia” composed of FATEC de
Atibaia and Etec Carmine Biagio Tundisi, provided for the evaluation of the Technical
Proposal based on three (3) scores - NT1, NT2, and NT3. NT2 dealt specifically with the
Organization of the Technical Team and was the only technical score to include technical
requirements related to Building Information Modeling.
The requirements relate to (i) the technical and professional qualifications of Sector
Coordinator 1, who must be a professional architect with a degree in architecture and
experience as a technical manager in the execution of executive design services for
public/private buildings using BIM methodology; and (ii) the technical and operational
capacity of the company, proven by certificates on behalf of the company for the design of
public/private buildings using BIM methodology.
The tender did not require a minimum number of certificates, nor did it consider
them mandatory. The submission of such certificates was qualifying, comprising the bidder's
technical score according to the number of certificates submitted. Thus, in the case of
technical and professional capacity, it would be scored as follows: ≥ 3 certificates = 6.0 2
certificates = 4.0 points 1 certificate = 2.0 points 0 certificates = 0 points. In the case of
technical-operational capacity, the scoring would follow the following scale: 2 certificates =
6.0 points 1 certificate = 2.0 points 0 certificates = 0 points.
Next, based on the analysis of RDC No. 670/2014 – State of Santa Catarina, with
the objective of hiring a specialized company for the Preparation of the Legal Project and
Executive Project for the New Cardiology Institute of Santa Catarina using Building
Information Modeling (BIM) to be built in the Municipality of São José -SC, it was noted
that the Technical Note would be composed of NFCET and NFBIM, respectively. Final Score
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
49
for Technical Team Capacity (technical-professional capacity) and Final Score for BIM
Project Development (technical-operational capacity).
Also for classification purposes, the NFCET consists of 35 (thirty-five) questions,
23 (twenty-three) of which are related to BIM. However, the BIM project development score
for a given professional was alternative and had a lower score. This is explained below. When
asked about the presence of one engineer or architect with proven experience in construction
planning on the technical team, a score of 1.75 was awarded if the answer was "YES." If this
planning was developed using specific software associated with BIM technology, an
additional 1.0 point was awarded, with a maximum score of 2.75. The same applies to the
other 22 (twenty-two) questions, with specific scores, as shown below:
Figure 1
Source - Public Tender No. 17/2023 – Municipality of Atibaia/SP
Figure 2
______________________________________________________________________________
Copyleft – Ius Publicum
49
for Technical Team Capacity (technical-professional capacity) and Final Score for BIM
Project Development (technical-operational capacity).
Also for classification purposes, the NFCET consists of 35 (thirty-five) questions,
23 (twenty-three) of which are related to BIM. However, the BIM project development score
for a given professional was alternative and had a lower score. This is explained below. When
asked about the presence of one engineer or architect with proven experience in construction
planning on the technical team, a score of 1.75 was awarded if the answer was "YES." If this
planning was developed using specific software associated with BIM technology, an
additional 1.0 point was awarded, with a maximum score of 2.75. The same applies to the
other 22 (twenty-two) questions, with specific scores, as shown below:
Figure 1
Source - Public Tender No. 17/2023 – Municipality of Atibaia/SP
Figure 2
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
50
Source - Public Tender No. 17/2023 – Municipality of Atibaia/SP
The NFBIM, on the other hand, provided for only one (1) requirement to be proven
by the company, also following the classification logic with progressive scoring and
maximum score, linking the development of BIM projects with minimum areas in m2, as
shown below:
Figure 3
Source - Public Tender No. 17/2023 – Municipality of Atibaia/SP
It should also be noted that the Technical Score would make up 40% (forty percent)
of the bidder's Final Score, while the Price Score would account for 60% (sixty percent).
______________________________________________________________________________
Copyleft – Ius Publicum
50
Source - Public Tender No. 17/2023 – Municipality of Atibaia/SP
The NFBIM, on the other hand, provided for only one (1) requirement to be proven
by the company, also following the classification logic with progressive scoring and
maximum score, linking the development of BIM projects with minimum areas in m2, as
shown below:
Figure 3
Source - Public Tender No. 17/2023 – Municipality of Atibaia/SP
It should also be noted that the Technical Score would make up 40% (forty percent)
of the bidder's Final Score, while the Price Score would account for 60% (sixty percent).
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
51
Finally, both Price Collection No. 11/2019 - State of Santa Catarina/Catarinense
Special Education Foundation and Price Collection No. 015/2020 - State of Santa
Catarina/State Secretariat of Public Security, composed the Technical Score solely with
Technical-Professional Capacity, based on the so-called Final Score of Technical Team
Capacity.
Both also presented questions (35 and 33, respectively) with and without reference
to BIM (27 for each), along the same lines as the aforementioned RDC. In other words, the
experience of a given professional in the preparation of certain projects is evaluated,
assigning a certain score and awarding extra points if the project was developed using BIM
technology, requiring at least one certificate for proof. In both cases, the Technical Score also
makes up the bidder's Final Score with a weight of 40% (forty percent), while the Price Score
would have a weight of 60% (sixty percent).
Therefore, the standard adopted in assigning progressive scores according to the
number of certificates or size of the area previously designed in BIM, solely for classification
purposes, was noted. In addition, it was noted that the score related to BIM would be
considered extra points, in addition to the main item evaluated.
7. FINAL CONSIDERATIONS
This article aimed to present an overview of the technical requirements in public
tenders related to Building Information Modeling (BIM), making it possible to establish
limits and suggestions to be observed by public authorities when preparing tenders.
Based on empirical research, it was possible to assess the main types of bidding and
evaluation criteria adopted. Regarding the contracting modality of the 25 (twenty-five) public
notices analyzed, the following modalities were adopted: (i) competition, (ii) electronic
auction, (iii) direct contracting by waiver due to value, (iv) direct contracting due to
unenforceability, (v) RDC, and (vi) price quotation (the latter two only in relation to public
notices in Santa Catarina, since they date from a period prior to the enactment of Law No.
14,133/2021).
______________________________________________________________________________
Copyleft – Ius Publicum
51
Finally, both Price Collection No. 11/2019 - State of Santa Catarina/Catarinense
Special Education Foundation and Price Collection No. 015/2020 - State of Santa
Catarina/State Secretariat of Public Security, composed the Technical Score solely with
Technical-Professional Capacity, based on the so-called Final Score of Technical Team
Capacity.
Both also presented questions (35 and 33, respectively) with and without reference
to BIM (27 for each), along the same lines as the aforementioned RDC. In other words, the
experience of a given professional in the preparation of certain projects is evaluated,
assigning a certain score and awarding extra points if the project was developed using BIM
technology, requiring at least one certificate for proof. In both cases, the Technical Score also
makes up the bidder's Final Score with a weight of 40% (forty percent), while the Price Score
would have a weight of 60% (sixty percent).
Therefore, the standard adopted in assigning progressive scores according to the
number of certificates or size of the area previously designed in BIM, solely for classification
purposes, was noted. In addition, it was noted that the score related to BIM would be
considered extra points, in addition to the main item evaluated.
7. FINAL CONSIDERATIONS
This article aimed to present an overview of the technical requirements in public
tenders related to Building Information Modeling (BIM), making it possible to establish
limits and suggestions to be observed by public authorities when preparing tenders.
Based on empirical research, it was possible to assess the main types of bidding and
evaluation criteria adopted. Regarding the contracting modality of the 25 (twenty-five) public
notices analyzed, the following modalities were adopted: (i) competition, (ii) electronic
auction, (iii) direct contracting by waiver due to value, (iv) direct contracting due to
unenforceability, (v) RDC, and (vi) price quotation (the latter two only in relation to public
notices in Santa Catarina, since they date from a period prior to the enactment of Law No.
14,133/2021).
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
52
The prevalence of direct hiring due to exemption based on value was observed,
based on Article 75, item I, of Law No. 14,133/2021, totaling 13 (thirteen) public notices. ly,
the Competition modality was adopted by five (5) public notices, followed by electronic
auction (three, 3); RDC and Price Collection, both with two (2) public notices each. The
prevailing contracting modality (exemption by value) also influenced the quantity in relation
to the evaluation criteria used. Of the 25 (twenty-five) public notices analyzed, only 4 (four)
adopted the Technical and Price criterion, while 21 (twenty-one) opted for the Lowest Price
criterion.
Despite the lower adoption of the technical and price criterion, it was observed that
only seven (7) public notices did not include technical qualification requirements related to
BIM. In other words, eighteen (18) public notices, even those whose evaluation criterion was
the lowest price, included some technical qualification requirement, whether operational
and/or professional, related to BIM.
In those public notices whose evaluation criteria were technical and price, a pattern
was observed of assigning progressive scores according to the number of certificates or size
of the area previously designed in BIM, solely for classification purposes. In addition, it was
noted that the score related to BIM would be considered extra points, in addition to the main
criterion evaluated. Furthermore, the Technical Score was given a weight of 40%, while the
Price Score accounted for 60% of the final score.
In addition, it was also observed that requirements concerning technical
qualifications related to BIM were commonly requested in other public notices. Regarding
technical and operational capacity, three groups of requirements were observed, namely: (i)
Preparation of projects in specific sectors, with a minimum area (5; 56%); (ii) Project
development in specific sectors with a minimum area and BIM project coordination (3; 33%);
and (iii) Project development in a specific sector, with no minimum area (1; 11%).
With regard to technical and professional capacity, five groups of requirements
were observed: (i) Project design in specific sectors, with no minimum area (6; 46%); (ii)
Project design in specific sectors, with no minimum area, and BIM project coordination (1;
______________________________________________________________________________
Copyleft – Ius Publicum
52
The prevalence of direct hiring due to exemption based on value was observed,
based on Article 75, item I, of Law No. 14,133/2021, totaling 13 (thirteen) public notices. ly,
the Competition modality was adopted by five (5) public notices, followed by electronic
auction (three, 3); RDC and Price Collection, both with two (2) public notices each. The
prevailing contracting modality (exemption by value) also influenced the quantity in relation
to the evaluation criteria used. Of the 25 (twenty-five) public notices analyzed, only 4 (four)
adopted the Technical and Price criterion, while 21 (twenty-one) opted for the Lowest Price
criterion.
Despite the lower adoption of the technical and price criterion, it was observed that
only seven (7) public notices did not include technical qualification requirements related to
BIM. In other words, eighteen (18) public notices, even those whose evaluation criterion was
the lowest price, included some technical qualification requirement, whether operational
and/or professional, related to BIM.
In those public notices whose evaluation criteria were technical and price, a pattern
was observed of assigning progressive scores according to the number of certificates or size
of the area previously designed in BIM, solely for classification purposes. In addition, it was
noted that the score related to BIM would be considered extra points, in addition to the main
criterion evaluated. Furthermore, the Technical Score was given a weight of 40%, while the
Price Score accounted for 60% of the final score.
In addition, it was also observed that requirements concerning technical
qualifications related to BIM were commonly requested in other public notices. Regarding
technical and operational capacity, three groups of requirements were observed, namely: (i)
Preparation of projects in specific sectors, with a minimum area (5; 56%); (ii) Project
development in specific sectors with a minimum area and BIM project coordination (3; 33%);
and (iii) Project development in a specific sector, with no minimum area (1; 11%).
With regard to technical and professional capacity, five groups of requirements
were observed: (i) Project design in specific sectors, with no minimum area (6; 46%); (ii)
Project design in specific sectors, with no minimum area, and BIM project coordination (1;
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
53
7%); (iii) Project development in specific sectors, with a minimum area (4; 31%); (iv) Project
development in specific sectors, with a minimum area and BIM project coordination (1; 8%);
and (v) Technical aptitude in handling software that uses BIM (1; 8%). In this case, "specific
sectors" refers to architectural, structural, electrical, plumbing, building, and installation
projects using BIM methodology.
In addition, there was also a prevalence of both the requirement for proof of
Technical-Operational and Technical-Professional Capacity (5; 28%) and proof of
Technical-Professional Capacity alone (5; 28%).
With this information, it can be inferred that the Public Administration itself has
been setting certain limits for technical requirements related to BIM. There is a requirement
for technical-operational and/or professional capacity in BIM, subject to certain criteria, such
as minimum area relating to the object to be tendered. In addition, they do not determine the
minimum number of certificates to be presented, but rather assign a score according to the
quantity demonstrated.
This practice is said to be self-contained because any minimum determination of the
number of certificates and minimum areas regardless of the object to be contracted could be
seen as directing the tender or restricting its competitiveness. On the contrary, by establishing
the execution of projects in one or more specific areas (tonic, structural, electrical, hydro-
sanitary, building, installations), with progressive scoring, it allows more companies to
participate in the tender.
However, the prevalence of the lowest price criterion may indicate a certain
reluctance on the part of the Public Administration to consider technical expertise as a
component of the final score, precisely because of the possibility of restricting the tender in
a market that is still growing.
However, it is suggested that the technical criterion should be adopted for more
complex objects, provided that the final score considers an appropriate proportion (as seen,
40% technical and 60% price) and that the requirement regarding BIM corresponds only to
______________________________________________________________________________
Copyleft – Ius Publicum
53
7%); (iii) Project development in specific sectors, with a minimum area (4; 31%); (iv) Project
development in specific sectors, with a minimum area and BIM project coordination (1; 8%);
and (v) Technical aptitude in handling software that uses BIM (1; 8%). In this case, "specific
sectors" refers to architectural, structural, electrical, plumbing, building, and installation
projects using BIM methodology.
In addition, there was also a prevalence of both the requirement for proof of
Technical-Operational and Technical-Professional Capacity (5; 28%) and proof of
Technical-Professional Capacity alone (5; 28%).
With this information, it can be inferred that the Public Administration itself has
been setting certain limits for technical requirements related to BIM. There is a requirement
for technical-operational and/or professional capacity in BIM, subject to certain criteria, such
as minimum area relating to the object to be tendered. In addition, they do not determine the
minimum number of certificates to be presented, but rather assign a score according to the
quantity demonstrated.
This practice is said to be self-contained because any minimum determination of the
number of certificates and minimum areas regardless of the object to be contracted could be
seen as directing the tender or restricting its competitiveness. On the contrary, by establishing
the execution of projects in one or more specific areas (tonic, structural, electrical, hydro-
sanitary, building, installations), with progressive scoring, it allows more companies to
participate in the tender.
However, the prevalence of the lowest price criterion may indicate a certain
reluctance on the part of the Public Administration to consider technical expertise as a
component of the final score, precisely because of the possibility of restricting the tender in
a market that is still growing.
However, it is suggested that the technical criterion should be adopted for more
complex objects, provided that the final score considers an appropriate proportion (as seen,
40% technical and 60% price) and that the requirement regarding BIM corresponds only to
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
54
a scoring criterion, as recommended by the Federal Court of Auditors without determining a
minimum number of certifications77.
The Public Administration must act with caution, not fear, in relation to such
requirements and must instruct the case files with robust justification containing the purpose
and minimum requirements for contracting in BIM, as also recommended by the TCU78.
To ensure the competitiveness of tenders and promote the development and
maturation of BIM use, it is also necessary for the agencies and companies that issue
Technical Capacity Certificates to take action. This is because they need to adapt to this new
reality and rectify certificates issued in the past that did not properly qualify that a particular
work or project was carried out using BIM methodology, even if the degree of maturity is
initial.
In addition, professional associations also need to adapt, albeit gradually, to this new
scenario. They need to update their certificate registration systems to ensure that they include
a specific field that allows for qualification with "in BIM," since this field does not currently
exist.
For this reason, it is also recommended that the Technical Collection Certificate,
when required in conjunction with certificates for technical and professional capacity
purposes, does not need to mention BIM, since, due to the scenario described above, it may
not contain such a reference. Therefore, this requirement should be considered.
Finally, it can be concluded that the development and maturation of BIM technology
in the market and its widespread use by the Public Administration must observe the limits
77 Federal Court of Accounts. Judgment 241/2023, Plenary Session, Reporting Judge: Minister Vital do Rêgo,
Judgment: February 15, 2023.
78 Federal Court of Accounts. Judgment 1367/2021, Plenary Session, Reporting Judge: Minister Aroldo Cedraz,
Judgment: June 9, 2021.
______________________________________________________________________________
Copyleft – Ius Publicum
54
a scoring criterion, as recommended by the Federal Court of Auditors without determining a
minimum number of certifications77.
The Public Administration must act with caution, not fear, in relation to such
requirements and must instruct the case files with robust justification containing the purpose
and minimum requirements for contracting in BIM, as also recommended by the TCU78.
To ensure the competitiveness of tenders and promote the development and
maturation of BIM use, it is also necessary for the agencies and companies that issue
Technical Capacity Certificates to take action. This is because they need to adapt to this new
reality and rectify certificates issued in the past that did not properly qualify that a particular
work or project was carried out using BIM methodology, even if the degree of maturity is
initial.
In addition, professional associations also need to adapt, albeit gradually, to this new
scenario. They need to update their certificate registration systems to ensure that they include
a specific field that allows for qualification with "in BIM," since this field does not currently
exist.
For this reason, it is also recommended that the Technical Collection Certificate,
when required in conjunction with certificates for technical and professional capacity
purposes, does not need to mention BIM, since, due to the scenario described above, it may
not contain such a reference. Therefore, this requirement should be considered.
Finally, it can be concluded that the development and maturation of BIM technology
in the market and its widespread use by the Public Administration must observe the limits
77 Federal Court of Accounts. Judgment 241/2023, Plenary Session, Reporting Judge: Minister Vital do Rêgo,
Judgment: February 15, 2023.
78 Federal Court of Accounts. Judgment 1367/2021, Plenary Session, Reporting Judge: Minister Aroldo Cedraz,
Judgment: June 9, 2021.
_____________________________________________________________
______________________________________________________________________________
Copyleft – Ius Publicum
55
and precautions set forth herein when qualifying bidders. This will ensure fair and
competitive tenders that effectively contribute to the efficient improvement of the execution,
supervision, and management of public works and engineering services using BIM
methodology.
As far as the general approach to BIM methodology concerns, examples from
European legal context (as developed under Directive 2014/24/EU and national
implementations) offers several instructive principles, as graduated qualification,
interoperability mandates requiring open and transparent formats to prevent vendor lock-in
and promote equal treatment of bidders regardless of software platform choices79 and,
foremost, collaborative contract paradigm to be realized through integrated team structures,
mutual information commitments, and transparent data sharing80.
Abstract. This article aims to provide an overview of the technical requirements
related to Building Information Modeling (BIM) in public notices in Brazil, in order to
establish limits and suggestions to be observed by public authorities when preparing public
notices. Based on a theoretical study of technical-operational and technical-professional
capabilities and empirical research conducted on a sample of 25 (twenty-five) public notices
for bids involving BIM engineering works or services, the quantitative and qualitative results
will be presented, such as the most commonly used bidding modalities and evaluation criteria
and the main technical qualification requirements related to BIM. Finally, suggestions will
be made to public authorities, companies, and bodies that issue technical qualification
certificates in order to improve and develop the maturity of BIM use.
79 E.g. Italy’s Annex I.9, legislative decree no. 36/2023, which expressly requires “interoperable platforms through
open, non-proprietary formats,”. More in general, on BIM and transparency, see the perspectives in Position Paper
of the EU BIM Task Group (November 2025) Fostering the policies to incorporate BIM in Public Procurement
across the EU, and Public Buyers Community, BIM integration in Public Procurement Survey Analysis Report 2025,
16 January 2026.
80 G.M. RACCA, Digital Transformation for an Effective E-Procurement, in C. Risvig Hamer, M. Andhov, E.
Bertellsen, R. Caranta (eds.), Into the Northern Light. In memory of Steen Treumer, Ex Tuto Publishing,
Copenaghen, 2022, p. 225 ff.
______________________________________________________________________________
Copyleft – Ius Publicum
55
and precautions set forth herein when qualifying bidders. This will ensure fair and
competitive tenders that effectively contribute to the efficient improvement of the execution,
supervision, and management of public works and engineering services using BIM
methodology.
As far as the general approach to BIM methodology concerns, examples from
European legal context (as developed under Directive 2014/24/EU and national
implementations) offers several instructive principles, as graduated qualification,
interoperability mandates requiring open and transparent formats to prevent vendor lock-in
and promote equal treatment of bidders regardless of software platform choices79 and,
foremost, collaborative contract paradigm to be realized through integrated team structures,
mutual information commitments, and transparent data sharing80.
Abstract. This article aims to provide an overview of the technical requirements
related to Building Information Modeling (BIM) in public notices in Brazil, in order to
establish limits and suggestions to be observed by public authorities when preparing public
notices. Based on a theoretical study of technical-operational and technical-professional
capabilities and empirical research conducted on a sample of 25 (twenty-five) public notices
for bids involving BIM engineering works or services, the quantitative and qualitative results
will be presented, such as the most commonly used bidding modalities and evaluation criteria
and the main technical qualification requirements related to BIM. Finally, suggestions will
be made to public authorities, companies, and bodies that issue technical qualification
certificates in order to improve and develop the maturity of BIM use.
79 E.g. Italy’s Annex I.9, legislative decree no. 36/2023, which expressly requires “interoperable platforms through
open, non-proprietary formats,”. More in general, on BIM and transparency, see the perspectives in Position Paper
of the EU BIM Task Group (November 2025) Fostering the policies to incorporate BIM in Public Procurement
across the EU, and Public Buyers Community, BIM integration in Public Procurement Survey Analysis Report 2025,
16 January 2026.
80 G.M. RACCA, Digital Transformation for an Effective E-Procurement, in C. Risvig Hamer, M. Andhov, E.
Bertellsen, R. Caranta (eds.), Into the Northern Light. In memory of Steen Treumer, Ex Tuto Publishing,
Copenaghen, 2022, p. 225 ff.
Continue lendo · do acervo
acervo com mais de 1.800 artigosTexto hospedado no JurisTube para leitura, citação e uso como anexo a coleções de vídeos. Os direitos autorais permanecem com o(a) autor(a).
Translate