Napredak i problemi u oblasti javnih nabavki
Transparentnost – Srbija (deo međunarodne mreže Transparency International) objavila je danas nalaze istraživanja o prvoj godini primene Zakona o javnim nabavkama. Ovaj zakon, kao najznačajniji antikorupcijski propis donet u mandatu prethodne Vlade, doneo je bitna poboljšanja, ali njegova primena još uvek nije u potpunosti obezbeđena. Uspeh zakona u mnogome zavisi od delotvornosti nadzora, ali su kapaciteti Uprave za javne nabavke, koja tome treba da da ključni doprinos i dalje nedovoljni.
Istraživanje koje je sprovela TS pokazuje da je glavni napredak ostvaren u povećanju transparentnosti, objavljivanjem velikog broja informacija na Portalu. Međutim u 10% slučajeva naručioci nisu objavili obavezne dokumente, a mogućnost objavljivanja korisnih podataka kada to nije obavezno (planovi nabavki, procenjena vrednost) se izrazito retko koristi. Takođe, istraživanje pokazuje da je povećana konkurencija u postupcima javnih nabavki, što je posledica smanjenja udela pregovaračkih postupaka u drugoj polovini 2013, ali i novih pravila o nabavkama male vrednosti. Međutim, da je konkurencija još uvek nedovoljna pokazuje podatak da u nabavkama male vrednosti samo 42% ponuda dolazi od firmi koje nisu direktno pozvane da daju ponude, a da „nepozvani“ dobijaju tek jednu četvrtinu takvih ugovora. Planiranje nije dovoljno realistično, a na njega se loše odražavaju i problemi sa budžetskim prihodima. U oko 40% postupaka koji su praćeni, primećene su značajnije uštede u odnosu na procenjenu vrednost. Izuzetno je mali broj izmena ugovora o javnim nabavkama koje su objavljene, a naručioci su u velikom broju slučajeva neosnovano tražili primenu pregovaračkog postupka.
Zakonski okvir je unapređen i kroz podzakonske akte, među kojima je najznačajniji Pravilnik o sadržini akta kojim se bliže uređuje postupak javne nabavke unutar naručioca,iz decembra 2013, na osnovu kojeg bi svi naručioci trebalo da urede proces planiranja i kontrole javnih nabavki. Plan borbe protiv korupcije u javnim nabavkama su pripremile Uprava za javne nabavke i Agencija za borbu protiv korupcije, ali ga Vlada još uvek nije usvojila. Još uvek nije usvojena ni uredba Vlade kojom bi trebalo bliže urediti sprovođenje javnih nabavki u oblasti odbrane i bezbednosti. Novi Zakon o prekršajima je potvrdio duži rok zastarelosti zbog kršenja Zakona o javnim nabavkama, što je bio veliki problem u praksi. Međutim, primena zakona je isključena kod veoma vrednih nabavki, kao što su nabavke koje se finansiraju kroz međudržavne sporazume ili kroz kredite međunarodnih finansijskih institucija.
Samo deo ovih problema će se rešiti kroz implementaciju Strategije za borbu protiv korupcije. Ažuriranje Strategije za reformu sistema javnih nabavki i pratećeg akcionog plana je u toku. Međutim, i druge promene su još uvek neophodne, naročito izmene Zakona o budžetskom sistemu (posebno u smislu planiranja), i Krivičnog zakonika (novo krivično delo u vezi sa javnim nabavkama, koje nije dobro formulisano). Strategija reforme javne uprave je u direktnoj suprotnosti sa Zakonom o javnim nabavkama, jer se u njoj osporavaju nadzorna ovlašćenja Uprave za javne nabavke i otvara prostor za sukob nadležnosti između te posebne organizacije i Ministarstva finansija.
Novi institut građanskog nadzornika je primenjen kod nekoliko nabavki koje su vrednije od milijardu dinara, ali o njihovim izveštajima još uvek nisu raspravljali nadležni skupštinski odbori.
Republička komisija za zaštitu prava je bitno povećala efikasnost svog rada u rešavanju zahteva za zaštitu prava, ali se tek očekuje veća aktivnost ovog organa u poništavanju nezakonitih ugovora i u prekršajnim postupcima. Državna revizorska institucija je započela „reviziju svrsishodnosti” na odabranom uzorku (službena putovanja), ali nalazi još uvek nisu saopšteni. I revizija DRI za 2012. je utvrdila brojne slučajeve kršenja osnovnih pravila o javnim nabavkama (npr. neosnovano isključenje konkurencije, nabavke koje su sprovedene bez ispunjenja uslova). Još uvek ne postoji evidencija o implementaciji novih pravila u vezi sa poništavanjem ugovora, kršenjem pravila, niti u vezi sa kažnjavanjem zabranjenog dogovaranja između ponuđača.
Upravi za javne nabavke još uvek nedostaju kadrovi, da bi u potpunosti mogle da vrše funkciju nadzora nad procesom javnih nabavki. Stanje znatno bolje kada je reč o Republičkoj komisiji za zaštitu prava i DRI a jednako loše kad je reč o budžetskim inspekcijama i internim revizijama. Tako je, na primer, Uprava za javne nabavke, koja je dobila značajna nova ovlašćenja nadzora nad primenom Zakona kod ne manje od 5000 naručilaca, ojačana za svega sedam službenika, i to tek pola godine nakon što je počela primena Zakona.
Nadamo se da će primena Zakona o javnim nabavkama biti predmet ozbiljnog razmatranja u Narodnoj skupštini i da će identifikovani problemi biti što pre otklonjeni.
- Analiza prakse izmena ugovora o javnim nabavkama, mart 2014.doc
- Dodatne nabavke uz primenu pregovarackog postupka, mart 2014.doc
- Saopstenje za javnost - napredak i problemi u oblasti javnih nabavki, mart 2014.doc
- Sprovođenje Zakona o javnim nabavkama - transparentnost i nabavke male vrednosti mart 2014.doc
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