EMBRAPIIda inovação institucional à ativação das capacidades dinâmicas do setor público

Resumo

This doctoral thesis investigates the role of public innovation intermediaries in activating Dynamic Capabilities of the Public Sector (DCPS) and in forming new institutional arrangements within Brazil’s innovation policy. The research begins with the observation that the Brazilian state has limited capacity to orchestrate and sustain complex innovation processes due to fragmented policies, a lack of inter-ministerial coordination, and limited interaction among universities, research institutes, and companies. The dynamic capabilities literature conceptualizes sense-making (SM), connecting (CN), and shaping (SH) as organizational routines that detect opportunities, build networks, and reconfigure assets in turbulent environments. Although originally formulated for firms, scholars argue for adapting the theory to the public sector and combining it with mission-oriented innovation policy, in which the State shapes markets and directs investments toward social challenges. The thesis analyses the Brazilian Company of Industrial Research and Innovation (EMBRAPII) as an institution for innovation. Established in 2013 as a social organization, EMBRAPII operates as a public– private intermediary with operational autonomy and a tripartite co-funding model; large firms receive up to one third of the resources for R&D projects, while small and medium-sized firms can receive up to 50 %, always with financial contributions from the companies, the EMBRAPII Units, and the federal government. This arrangement enables swift project execution and improves efficiency in science–industry collaboration. A sequential mixed-methods design was used, with 11 interviews and analysis of official documents, followed by 41 questionnaires administered to Units to measure the activation and maturity of the DCPS. The SM-CN-SH dimensions were operationalized to capture how EMBRAPII identifies technological demands, builds networks, and adapts its routines. The results show that EMBRAPII develops and disseminates dynamic state capabilities through its role as a technological intermediation platform. Qualitative evidence indicates that the organization fosters continuous learning, contractual flexibility, and collaboration between firms and research centers, evidencing SM-CN-SH routines. The quantitative analysis revealed a positive correlation between SH routines and Unit performance, measured by the number of projects with companies and by resource mobilization, indicating that the ability to reconfigure structures and direct technological efforts is crucial to improving the efficiency and adaptability of the innovation system. The study also observed the emergence of hybrid contractual arrangements that integrate competencies from science and technology institutes and companies, establishing a new model of public innovation governance. Conceptually, the thesis proposes an analytical model of Dynamic Capabilities in the Public Sector for innovation intermediaries, integrating Dynamic Capabilities Theory and the mission-oriented innovation approach. The model provides indicators to measure the maturity of SM-CN-SH routines in public organizations and shows how EMBRAPII constitutes an innovation in innovation policy by renewing how the State learns, coordinates, and promotes innovation. In addition to deepening the theoretical debate, the research offers methodological guidelines for measuring DCPS, emphasizes the role of public–private intermediaries in orchestrating innovation ecosystems, and offers insights for other organizations seeking to implement mission-oriented policies.

Ficha do documento

Tipo

Tese

Ano

2025

Instituição

Fundação Getulio Vargas

Fonte

Repositório da FGV

Idioma

Português

Acesso

Acesso restrito

Identificador

oai:repositorio.fgv.br:10438/38535

Temas

Gestão PúblicaAdministração PúblicaTecnologiaDadosGovernança

Palavras-chave

Inovação tecnológicaArranjos institucionaisIntermediários de inovaçãoPolíticas de inovaçãoEMBRAPIICapacidades dinâmicas do setor públicoInnovation policyInstitutional arrangementsInnovation intermediariesDynamic state capabilitiesAdministração públicaDesenvolvimento organizacionalAdministração pública - Inovações tecnológicasGovernançaEmpresa Brasileira de Pesquisa e Inovação Industrial