Scholarly Papers
May 10, 2022

Fighting Corruption in Public Works: The Use of Cost Engineering in Criminal Investigation

Publication: Journal of Legal Affairs and Dispute Resolution in Engineering and Construction
Volume 14, Issue 3

Abstract

Cost engineering aims to obtain reliable cost and schedule estimates. However, many public works demand additional costs that are considerably higher than the initial cost estimates. In Brazil, this can be partially explained by how the government hires public works services. Because of the high frequency of this problem and the associated damage, the aspects that impact overpricing should be better understood, including fraudulent acts. This paper presents a case study to demonstrate how cost engineering can be used to identify frauds in Brazilian public works. The research method was based on a quantitative approach to describe the estimated overbilling through bibliographic and documentary analysis of forensics engineering expert reports. Data from public works contracts were obtained for a 4-year period, which resulted in an average percentage of overbilling. This index enabled identifying fraudulent evidence in Brazilian public works that match a period of highly corrupt practices in the country.

Get full access to this article

View all available purchase options and get full access to this article.

Data Availability Statement

Some or all data used in this study, such as cost data of the sample investigated contract, are confidential in nature and may only be provided with restrictions, i.e., only the total cost can be provided.

References

List of Statutes

Instrução Técnica n° 2—DITEC e Orientação Técnica n° 001-DITEC—ambas dispõem sobre a padronização de procedimentos e exames para análise de desvios de recursos públicos em obras no âmbito da perícia de Engenharia Legal (Engenharia Civil).
Instrução Técnica n° 4/2006—DITEC—Dispõe sobre a padronização de procedimentos e exames no âmbito da perícia de Engenharia Legal (Engenharia Civil).
Lei Federal No. 12.527/2011 (Lei de Acesso à Informação), http://www.planalto.gov.br/ccivil_03/_ato2011-2014/2011/lei/l12527.htm.
Lei No. 14.133/2021 (Lei de Licitações e Contratos Administrativos), http://www.planalto.gov.br/ccivil_03/_ato2019-2022/2021/lei/L14133.htm.

Works Cited

APCF (National Association of Federal Criminal Experts). 2006. “Entrevista: O Procurador-deputado. Revista Perícia Federal: VI (23).” Accessed May 15, 2021. https://apcf.org.br/wp-content/uploads/2020/06/23.pdf .
Bueno, E. 2006. A coroa, a cruz e a espada. Lei, ordem e corrupção no Brasil Colônia—1548–1558. Rio de Janeiro: Editora Objetiva.
Calland, R., and K. Bentley. 2013. “The impact and effectiveness of transparency and accountability initiatives: Freedom of information.” Dev. Policy Rev. 31 (1): 69–87. https://doi.org/10.1111/dpr.12020.
Catalão, F., C. O. Cruz, and J. M. Sarmento. 2019. “The determinants of cost deviations and overruns in transport projects, an endogenous models approach.” Transp. Policy 74 (Feb): 224–238. https://doi.org/10.1016/j.tranpol.2018.12.008.
CGU (Brazilian Office of Internal Affairs). 2015. “Acordo de Cooperação Técnica n° 19/2015.” Accessed May 15, 2021. http://www.cgu.gov.br/assuntos/auditoria-e-fiscalizacao/acoes-investigativas/operacoes-especiais/arquivos/acordo-de-cooperacao-cgu-dpf.
Chan, A. P. C., and E. K. Owusu. 2017. “Corruption forms in the construction industry: Literature review.” J. Constr. Eng. Manage. 143 (8): 04017057. https://doi.org/10.1061/(ASCE)CO.1943-7862.0001353.
Coutinho, L. S. A. L. 2010. “Modelagem do ‘tempo de execução’ de obras civis: Estudo de caso na Universidade Federal do Pará (UFPA).” Master’s thesis, Instituto de Tecnologia, Universidade Federal do Pará.
Cristaudo, R. 2018. “Essays on cost overruns in infrastructure provision.” Accessed May 15, 2021. https://iris.unime.it/retrieve/handle/11570/3127456/205873/Phd%20Thesis%20Rossana%20Cristaudo%20Final.pdf.
de Jong, M., W. P. Henry, and N. Stanbury. 2009. “Eliminating corruption in our engineering/construction industry.” Leadersh. Manage. Eng. 9 (3): 105–111. https://doi.org/10.1061/(ASCE)1532-6748(2009)9:3(105).
Flyvbjerg, B. 2011. Over budget, over time, over and over again: Managing major projects. Oxford, UK: Oxford University Press.
Flyvbjerg, B., N. Bruzelius, and W. Rothengatter. 2003a. Megaprojects and risk: An anatomy of ambition. London: Cambridge University Press.
Flyvbjerg, B., M. K. S. Holm, and S. L. Buhl. 2003b. “How common and how large are cost overruns in transport infrastructure projects?” Transp. Rev. 23 (1): 71–88. https://doi.org/10.1080/01441640309904.
Fortini, C., and A. Shermam. 2017. “Governança pública e combate à corrupção: Novas perspectivas para o controle da Administração Pública brasileira.” Accessed May 15, 2021. http://www.editoraforum.com.br/wp-content/uploads/2017/05/governanca-combate-corrupcao.pdf.
Greves, D., and H. Journier. 2003. “Cost engineering for cost-effective space programmes.” Accessed May 15, 2021. http://www.esa.int/esapub/bulletin/bullet115/chapter11_bul115.pdf.
Heimann, F., and M. Pieth. 2017. “Confronting corruption: Past concerns, present challenges, and future strategies.” Accessed May 15, 2021. https://oxford.universitypressscholarship.com/view/10.1093/oso/9780190458331.001.0001/oso-9780190458331.
Huther, J., and A. Shad. 2000. “Anti-corruption policies and programs: A framework for evaluation.” Accessed May 15, 2021. http://hdl.handle.net/10986/19753.
IBRAOP (Brazilian Public Works Audit Institute). 2012. “Orientação Técnica n° 002-IBRAOP—Métodos e Procedimentos para Apuração de Sobrepreço e Superfaturamento em Obras Públicas.” Accessed May 15, 2021. http://www.ibraop.org.br/media/sinaop/12_sinaop/artigos_tecnicos/pericias_e_superfaturamento_de_obras_publicas_nos_procedimentos_de_investigacao_criminal.pdf.
IBRAOP (Brazilian Public Works Audit Institute). 2019. “Instituto Brasileiro de Auditoria de Obras Públicas.” Accessed May 15, 2021. http://www.ibraop.org.br/.
Jain, A. K. 2001. “Corruption: A review.” J. Econ. Surv. 15 (1): 71–121. https://doi.org/10.1111/1467-6419.00133.
Johnson, J. 2012. “Theories of change in anti-corruption work: A tool for programme design and evaluation.” Accessed May 15, 2021. https://www.cmi.no/publications/4635-theories-of-change-in-anti-corruption-work.
Jones, D. S. 2007. “Public procurement in southeast asia: Challenge and reform.” J. Public Procure. 7 (1): 3–33. https://doi.org/10.1108/JOPP-07-01-2007-B001.
Kenny, C. 2011. “Publishing construction contracts as a tool for efficiency and good governance.” Accessed May 15, 2021. https://www.cgdev.org/publication/publishing-construction-contracts-tool-efficiency-and-good-governance-working-paper-272.
Knight, L., C. Harland, J. Telgen, K. V. Thai, G. Callender, and K. Mcken. 2007. Public procurement: International cases and commentary. New York: Routledge Taylor & Francis Group.
Le, Y., M. Shan, A. P. C. Chan, and Y. Hu. 2014. “Overview of corruption research in construction.” J. Manage. Eng. 30 (4): 02514001. https://doi.org/10.1061/(ASCE)ME.1943-5479.0000300.
Lee, J.-S., W.-R. Kim, and K. Jeong. 2021. “Estimating damages from bid-rigging in the construction industry.” J. Leg. Aff. Dispute Resolut. Eng. Constr. 13 (3): 05021003. https://doi.org/10.1061/(ASCE)LA.1943-4170.0000476.
Lopes, A. O. 2006. “Caso SUDAM e SUDENE—A fraude que não acabou.” Accessed May 15, 2021. https://apcf.org.br/wp-content/uploads/2020/06/23.pdf.
Lopes, A. O. 2011. “Perícia em obras rodoviárias—A Experiência da Fiscalização Concomitante do Lote 07 da BR 101/NE.” Accessed May 15, 2021. http://www.ibraop.org.br/enaop2012/docs/arquivos_tecnicos/Pericia_obras_rodoviarias_experiencia_fiscalizacao_concomitante_lote_07_BR_101NE_Alan_Lopes.pdf.
Lopes, A. O. 2017. Superfaturamento de Obras Públicas. Columbia, SC: Amazon Kindle Direct Publishing.
Lopes, A. O. 2018. “Overbilling of public works in Brazil: Case study—Operation black box.” In Proc., 62nd AACE Int. Conf. and Expo 2018. Fairmont, WV: AACE International.
Lopes, A. O. 2019. “Superfaturamento de Contratos Governamentais de Serviços de Engenharia de Construção–Estudo de Caso da Operação Caixa-Preta-2009.” Revista Brasileira de Ciências Policiais 9 (2): 71–109. https://doi.org/10.1061/10.31412%2Frbcp.v9i2.528.
Lopes, A. O., et al. 2008. “Manual de Perícias de Engenharia—Cálculo de Superfaturamento e outros Danos ao Erário.” Accessed May 15, 2021. http://www.ibraop.org.br/media/sinaop/12_sinaop/artigos_tecnicos/manual_de_pericias_de_engenharia-calculo_de_superfaturamento.pdf.
Love, P. E. D., X. Wang, C.-P. Sing, and R. L. K. Tiong. 2012. “Determining the probability of project cost overruns.” J. Constr. Eng. Manage. 139 (3): 321–330. https://doi.org/10.1061/(ASCE)CO.1943-7862.0000575.
Mello, F. B. D. 2015. “Regime, government and constitutional crises: The role of rule of law and accountability in Latin America.” Master’s thesis, Faculty of the Graduate School of Arts and Sciences, Georgetown Univ.
Mizoguchi, T., and V. N. Quyen. 2014. “Corruption in public procurement market.” Pac. Econ. Rev. 19 (5): 577–591. https://doi.org/10.1111/1468-0106.12084.
Neu, D., J. Everett, and A. S. Rahaman. 2015. “Preventing corruption within government procurement: Constructing the disciplined and ethical subject.” J. Crit. Perspect. Account. 28 (May): 49–61. https://doi.org/10.1016/j.cpa.2014.03.012.
Nishijima, M., F. M. Sarti, and R. C. Cati. 2019. “The underlying causes of Brazilian corruption.” In Corruption in latin America, edited by R. Rotberg, 29–56. Cham, Switzerland: Springer. https://doi.org/10.1007/978-3-319-94057-1_2.
Noonan, J. T. 1986. Bribes: The intellectual history of a moral idea. New York: Macmillan.
Odhiambo, W., and P. Kamau. 2003. Public procurement: Lessons from Kenya, Tanzania and Uganda. Paris: OECD Development Centre.
OECD (Organization for Economic Co-operation and Development). 2014. “Integrity in practice: The rationale for fighting corruption.” Accessed February 14, 2019. https://www.oecd.org/cleangovbiz/49693613.pdf.
OECD (Organization for Economic Co-operation and Development). 2019. “Tool kit.” Accessed February 14, 2019. http://www.oecd.org/cleangovbiz/toolkit/.
Owusu, E. K., A. P. C. Chan, and A. Darko. 2019. “Thematic overview of corruption in infrastructure procurement process.” J. Infrastruct. Syst. 25 (2): 02519001. https://doi.org/10.1061/(ASCE)IS.1943-555X.0000484.
PF (Polícia Federal). 2014. Manual de Investigação de Desvio de Recursos Públicos em Obras de Engenharia. Fortaleza, Brazil: Serviço de Repressão a Desvios de Recursos Públicos. Coordenação Geral de Polícia Fazendária. Diretoria de Investigação e Combate ao Crime Organizado. Academia Nacional de Polícia. Polícia Federal. Ministério da Justiça.
Ribeiro, H. V., L. G. A. Alves, A. F. Martins, E. K. Lenzi, and M. Perc. 2018. “The dynamical structure of political corruption networks.” J. Complex Networks 6 (6): 989–1003. https://doi.org/10.1093/comnet/cny002.
Rotberg, R. I. 2019. The corruption of Latin America. Berlin: Springer.
Signor, R., P. E. D. Love, and O. Olatunji. 2016. “Determining overpricing in Brazilian infrastructure projects: A forensic approach.” J. Constr. Eng. Manage. 142 (9): 06016001. https://doi.org/10.1061/(ASCE)CO.1943-7862.0001156.
Signor, R., P. E. D. Love, J. J. C. B. Vallim, A. B. Raupp, and O. Olatunji. 2019. “It is not collusion unless you get caught: The case of ‘Operation Car Wash’ and unearthing of a cartel.” J. Antitrust Enforcement 7 (2): 177–202. https://doi.org/10.1093/jaenfo/jnz009.
Signor, R., P. S. Oliveira Júnior, M. A. Da Silva, and D. A. R. De Oliveira. 2006. “O Potencial de Perícias de Engenharia em Rodovias.” Accessed May 15, 2021. https://apcf.org.br/wp-content/uploads/2020/06/23.pdf.
Silva Filho, L. O. 2008. “Perícias e Superfaturamento de Obras Públicas: O que não vai para o papel.” Accessed May 15, 2021. http://www.ibraop.org.br/media/sinaop/12_sinaop/artigos_tecnicos/pericias_e_superfaturamento_de_obras_publicas_nos_procedimentos_de_investigacao_criminal.pdf.
Sohail, M., and S. Cavill. 2008. “Accountability to prevent corruption in construction projects.” J. Constr. Eng. Manage. 134 (9): 729–738. https://doi.org/10.1061/(ASCE)0733-9364(2008)134:9(729).
TCU (Brazilian Federal Court of Accounts). 2012. “Roteiro de Auditoria de Obras Públicas.” Accessed May 15, 2021. https://www.cjf.jus.br/cjf/unidades/controle-interno/normatizacao/roteiro-de-auditoria-de-obras-publicas-tcu.
TCU (Brazilian Federal Court of Accounts). 2016. “FISCOBRAS 20 ANOS.” Accessed May 15, 2021. https://portal.tcu.gov.br/data/files/93/C4/3D/41/F6DEF610F5680BF6F18818A8/Fiscobras_20_anos.pdf.
TI (Transparency International). 2016. “Glossary of corruption offences.” Accessed May 15, 2021. http://www.transparency.org/glossary.
TI (Transparency International). 2018. “Corruption perceptions index 2018.” Accessed May 15, 2021. https://www.transparency.org/cpi2018.
Valters, C. 2015. Theories of change—Time for a radical approach to learning in development. London: The Asia Foundation.
Vilhena, P. 2018. “Corruption: Brazil’s everlasting parasite.” Honors Undergraduate thesis, Dept. of Political Science, Univ. of Central Florida.
WBG (World Bank Group). 2019. “Governance.” Accessed May 15, 2021. https://www.worldbank.org/en/topic/governance.
Woodall, B. 1996. Japan under construction: Corruption, politics, and public works. Los Angeles: Univ. of California Press.
Zinkernagel, G. F., H. Hechler, L. Koechlin, and D. Morris. 2011. “Can UNCAC address grand corruption?” Accessed May 15, 2021. https://www.cmi.no/publications/4226-can-uncac-address-grand-corruption.

Information & Authors

Information

Published In

Go to Journal of Legal Affairs and Dispute Resolution in Engineering and Construction
Journal of Legal Affairs and Dispute Resolution in Engineering and Construction
Volume 14Issue 3August 2022

History

Received: Jun 8, 2021
Accepted: Feb 21, 2022
Published online: May 10, 2022
Published in print: Aug 1, 2022
Discussion open until: Oct 10, 2022

Permissions

Request permissions for this article.

Authors

Affiliations

Federal Criminal Expert, Forensic Engineering Service, National Institute of Criminalistics, Brazilian Federal Police, Spo—Quadra 7, Lote 23, Estr. St. Policial Militar—Asa Sul, Brasília, DF 70610-200, Brazil (corresponding author). ORCID: https://orcid.org/0000-0002-2990-3241. Email: [email protected]
Michelle Andrade, Ph.D. [email protected]
Professor, Graduate Program in Transportation, Univ. of Brasilia (UnB)—Asa Norte, Brasília, DF 70910-900, Brazil. Email: [email protected]

Metrics & Citations

Metrics

Citations

Download citation

If you have the appropriate software installed, you can download article citation data to the citation manager of your choice. Simply select your manager software from the list below and click Download.

Cited by

  • Misrepresentations and Criminal Liability in Project Reporting: A Case Study of the Failed Virgil C. Summer Project, Journal of Legal Affairs and Dispute Resolution in Engineering and Construction, 10.1061/JLADAH.LADR-956, 15, 3, (2023).
  • Corruption Risks in Public Construction, Journal of Legal Affairs and Dispute Resolution in Engineering and Construction, 10.1061/JLADAH.LADR-936, 15, 2, (2023).

View Options

Get Access

Access content

Please select your options to get access

Log in/Register Log in via your institution (Shibboleth)
ASCE Members: Please log in to see member pricing

Purchase

Save for later Information on ASCE Library Cards
ASCE Library Cards let you download journal articles, proceedings papers, and available book chapters across the entire ASCE Library platform. ASCE Library Cards remain active for 24 months or until all downloads are used. Note: This content will be debited as one download at time of checkout.

Terms of Use: ASCE Library Cards are for individual, personal use only. Reselling, republishing, or forwarding the materials to libraries or reading rooms is prohibited.
ASCE Library Card (5 downloads)
$105.00
Add to cart
ASCE Library Card (20 downloads)
$280.00
Add to cart
Buy Single Article
$35.00
Add to cart

Get Access

Access content

Please select your options to get access

Log in/Register Log in via your institution (Shibboleth)
ASCE Members: Please log in to see member pricing

Purchase

Save for later Information on ASCE Library Cards
ASCE Library Cards let you download journal articles, proceedings papers, and available book chapters across the entire ASCE Library platform. ASCE Library Cards remain active for 24 months or until all downloads are used. Note: This content will be debited as one download at time of checkout.

Terms of Use: ASCE Library Cards are for individual, personal use only. Reselling, republishing, or forwarding the materials to libraries or reading rooms is prohibited.
ASCE Library Card (5 downloads)
$105.00
Add to cart
ASCE Library Card (20 downloads)
$280.00
Add to cart
Buy Single Article
$35.00
Add to cart

Media

Figures

Other

Tables

Share

Share

Copy the content Link

Share with email

Email a colleague

Share