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  • May 2, 2020

Propunerea ANAP de Ghid privind gestionarea de catre autoritatile/entitatile contractante a solicitarilor de clarificari si a raspunsurilor asociate acestora in cadrul procedurilor de atribuire – sursa unei potentiale izolari accentuate a autoritatilor contractante

ANAP a publicat recent pe site-ul instituției Ghidul privind gestionarea de către autoritățile/entitățile contractante a solicitărilor de clarificări și a răspunsurilor asociate acestora în cadrul procedurilor de atribuire. Documentul poate fi consultat aici si persoanele interesate pot formula observații pana pe data de 15.05.2020.

ÎNDRUMĂRI PRIVIND TRATAMENTUL EGAL ȘI TRANSPARENȚA ÎN RĂSPUNSURILE FORMULATE LA SOLICITĂRILE DE CLARIFICARE

Documentul conține unele îndrumări evidente precum obligația autorităților contractante de a respecta principiile dreptului achizițiilor publice precum tratamentul egal și transparenței prin răspunsurile formulate la solicitările de clarificare ale ofertanților si chiar si unele îndrumări binevenite precum următoarea: ´Sunt de evitat răspunsurile formale prin intermediul cărora nu se oferă detalii lămuritoare ci autoritatea/entitatea contractantă își reconfirmă poziția prin trimitere la informațiile din documentație, atunci când acestea sunt vădit neclare!´ Este bine-cunoscută tendința unor autorități contractante de a răspunde pur formal unor solicitări de modificare/clarificare a unor prevederi neclare sau chiar discriminatorii din cuprinsul documentației de atribuire, care de multe ori determină crearea unei prăpăstii între operatorii comerciali diligenți și autoritățile contractante.

ÎNDRUMĂRI SUB SEMNUL ÎNTREBĂRII

Unele îndrumări din ghid sunt însă profund inoportune și nu fac decât să adauge un nivel adițional de norme/îndrumări sau reguli de soft law unui sistem care suferă deja de supra legiferare, inflexibilitate și lipsa de maturitate din partea autorităților contractante.

Acesta este de pildă cazul îndrumării conform căreia este recomandat autorităților contractante, ca, atunci când un operator economic interesat solicita modificarea/eliminarea conținutului unor părți din documentația de atribuire, respectiv a unor criterii de calificare și selecție deja publicate, factori de evaluare, clauze contractuale, formulare să respecte următoarele reguli:

  • Răspunsurile la aceste întrebări nu trebuie să conducă la modificări substanțiale ale informațiilor deja publicate.
  • Răspunsul nu poate să afecteze indicatorii principali privind rezultatele contractului, nu poate conduce la restrângerea concurenței și aduce schimbări în ceea ce privește operatorii economici cărora li se adresează documentația de atribuire inițială;
  • Răspunsul nu poate sa genereze modificări substanțiale ale criteriilor de calificare sau selecție prin extinderea sau suplimentarea acestora, având ca efect limitarea concurenței sau favorizarea anumitor operatori economici;

IMPLICAȚII PRACTICE PENTRU OPERATORII ECONOMICI

O astfel de abordare din partea autorităților contractante lasă lipsit de orice utilitate demersul unui operator economic interesat și specializat într-un anumit sector de a aduce lămuriri cu privire la rațiunile pentru care, de pildă, o anumită condiție din documentația de atribuire restrânge concurența pentru respectiva procedură. Nu putem nega faptul că, nu de multe ori, operatorii economici ce operează într-un anumit sector cunosc noi tehnologii sau înțeleg mai bine decât clientul lor public (potențial) de ce o anumita condiție nu este oportună într-un caz dat.

Mai mult, pe alocuri, însăși modalitatea de formulare a acestor îndrumări este ambiguă, lăsând loc unor interpretări ce nu pot fi decât contrare scopurilor legislației achizițiilor publice. Presupunând că ne aflăm în fața unei condiții restrictive privind capacitatea tehnică/experiența similară a ofertanților, condiții ce fac ca acea procedură să fie deschisă doar unei categorii restrânse de operatori,[1] aplicarea ad litteram a îndrumării conform căreia răspunsul autorității nu poate aduce schimbări în ceea ce privește operatorii economici cărora li se adresează documentația de atribuire inițială pare să sugereze că o autoritate nu va putea să modifice acea inadecvare demonstrată în perioada clarificărilor de către operatorul economic interesat.

IN(UTILITATEA) GHIDULUI

Finalizând, însăși existența acestui Ghid de îndrumări poate fi pusă sub semnul discuției. Dreptul european și dreptul național al achizițiilor publice și, mai ales, jurisprudența interpretativa a Curții de Justiție a Uniunii Europene cuprind deja norme și reguli clare și suficiente pentru asigurarea unui cadru normativ cert și pentru identificarea regimului juridic aplicabil solicitărilor de clarificare.

În concret, răspunsurile autorităților contractante la astfel de solicitări și solicitările sau întrebările pe care autoritățile însele le pot adresa în faza de evaluare trebuie să fie mai ales conform principiului proporționalității, principiu care permite autorităților contractante să adopte conduita oportună fiecărui caz în parte.[2]

Nu trebuie să uităm în definitiv că autoritățile contractante au putere discreționară în privința tuturor deciziilor luate în cadrul procesului de atribuire și aceasta discreție trebuie exercitată în limitele legalității și în mod proporțional, iar autoritățile nu se pot maturiza în modalitatea lor de exercitare a acesteia decât manifestând-o și asumându-și deciziile pentru fiecare procedură în parte (proces de maturizare instituțional similar celui personal).

CONCLUZII

Adăugarea unui strat superior de reguli în aceasta materie, precum Ghidul în discuție, nu face decât sa confirme și sa adâncească:

  • pe de o parte lipsa de maturitate a autorităților contractante din România (dovedită prin incidența redusă a unor strategii de contractare cu obiective sociale sau prin incidența redusă a unor tipuri de proceduri de atribuire mai complexe) și
  • pe de altă parte abisul dintre clienții publici din Romania și companiile competitive, abis ce nu poate fi depășit decât prin crearea unor cadre și instrumente de interacțiune dintre cele doua categorii.

Solicitările de modificare erau, în practică, un astfel de instrument util, mai ales atunci când astfel de solicitări sunt suficient de argumentate, atât la nivel tehnic, cât și din punct de vedere juridic. De altfel, în practica noastră recurentă am obținut răspunsuri favorabile pentru clienți în licitații din sectoare marcate de un nivel ridicat de tehnologizare sau specializare cum ar fi în domeniul energetic, feroviar, militar, al transporturilor, apei și gazelor, acolo unde, de multe ori, operatorii economici au fost mai informați cu privire la soluții tehnice mai inovatoare, mai oportune sau mai puțin restrictive.

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Mai multe publicații pe acest subiect, dar și alte teme de dreptul achizițiilor publice și dreptul construcțiilor puteți găsi pe site-ul nostru:

https://sirbuandvornicu.com/

SIRBU & VORNICU LAW este o firma de avocatura specializată în dreptul achizițiilor publice și dreptul construcțiilor și oferă consultanță privind orice aspect juridic ce poate surveni pe parcursul procedurii de atribuire, în cursul executării contractului, precum și asistență și reprezentare în contestații pe rolul CNSC și al instanțelor de judecată.

[1] A se vedea pe larg aici: R. Vornicu, ´Legea 98/2016 privind achizițiile publice comentata´, Wolters Kluwer Online, in co-autorat cu Dacian Cosmin Dragoș.

[2] Ibidem, a se vedea comentariul relevant.

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Razvan Delibasa is a young, enthusiastic lawyer whose primary focus is public procurement, construction law, and real estate. He holds a Bachelor's Degree from Faculty of Law, University of Bucharest.

Razvan has qualified with the Bucharest Bar and has shown abilities to approach each case with meticulous attention to detail and an unwavering dedication to delivering pragmatic and effective legal solutions.

Octavian specializes in civil, commercial, and administrative disputes, which are addressed both within the Romanian court system and before arbitral tribunals.

He possesses a discerning ability to identify potential weaknesses in each procedural path that could be pursued, ultimately guiding the selection of the most appropriate strategy for each specific dispute, all while keeping a sharp focus on achieving the client's ultimate objectives.

Before joining S&V, Octavian practiced law at one of the first full service law firms to be established in Bucharest and Romania, representing a wide-range of clients, from midsize to large corporations, as well ass private high net worth individuals.

Recent cases in which Octavian was has been engaged in comprise:

▪ representing a major domestic outdoor advertising company in multiple disputes concerning (i) illegal removal of billboards by Bucharest public authorities and (ii) suspending and annulling a public domain rental agreements;

▪ acting on behalf of a notorious offshore company, purportedly associated with a prominent Romanian political and business figure, in enforcement proceedings against the Romanian State and in addressing challenges to enforcement;

▪ serving as a member team representing the Ministry of Environment, Water and Forests in two ICC Paris disputes, valued at EUR 50M and seated in Paris, arising from the privatisation of PETROM S.A.

▪ representing one of Romania's largest fashion retailers in disputes arising from the repercutions of the COVID-19 pandemic on rental agreements associated with mall spaces;

Cristina possesses expertise in the domains of public procurement, construction law, and real estate. Since becoming a part of our team, her contributions have been pivotal to major public procurement and energy ventures.

Cristina's educational background includes graduating from the Faculty of Law at the esteemed University of Bucharest. Currently, she is pursuing a master's degree in International Arbitration, further enhancing her legal acumen.

Driven by an unwavering passion for her field, Cristina is perpetually committed to broadening her knowledge and refining her skills. This fervor for continuous learning, coupled with her resolute dedication to professional advancement, positions her as an exceptionally valuable legal practitioner.

Alexandra is an alumna of the University of Bucharest, Faculty of Law, and currently contributes her expertise to the dispute resolution and arbitration department at Sirbu & Vornicu Law. Her primary specializations encompass public procurement, construction law, and administrative law.

Alexandra excels in collaborative environments, readily engaging with her colleagues to foster the exchange of opinions and ideas. This approach consistently leads to the identification of the most efficient and advantageous working methods.

Fuelled by a fervent aspiration to translate her accumulated knowledge into practical outcomes, Alexandra is characterized by her unwavering dedication. Her commitment manifests in her wholehearted support of our clients, ensuring the provision of optimal solutions.

Andreea has been involved in a broad range of urbanism and construction disputes including arbitration proceedings, regarding matters such as the execution of FIDIC and public procurement contracts. Her experience also covers energy market issues, such as the energy market liberalization and reactive energy regulations.

Moreover, Andreea has been directly involved in disputes regarding major infrastructure and construction projects and has assisted clients in all stages of litigation. Her litigation and arbitration practices are completed by her advisory work on procurement contracts with a focus on construction contracts.

In addition to her experience in construction and energy law, Andreea is keenly interested in business law and different commercial matters, being involved in several projects initiated by the Romanian Institute of Commercial Law.

Outside of the courtroom, Andreea has been involved in the organizations of several academic events, including international conferences and mock trials competition for law students.

She is a very hard working and enthusiastic individual whose aspiration is to continuously broaden her theoretical and practical knowledge. Her eagerness to constantly learn new matters along with her devotion to grow on a professional level make her highly valuable.

Andreea has graduated Law School as a valedictorian and has a master’s degree in International Arbitration from the University of Bucharest.

Stefan Dudas has over ten years of experience in international dispute settlement and has practiced law in several European jurisdictions, including France, Germany, Austria and Romania while working for world-renowned international law firms, such as Shearman & Sterling LLP and Derains & Gharavi International, and other market leading law firms in Romania, such as NNDKP and Musat & Associates.

He focuses his practice on investor-State disputes, as well as complex commercial arbitrations in the energy, infrastructure, insurance, and oil and gas sectors.  He has acted as counsel in arbitrations before ICSID, ICC and UNCITRAL under a variety of substantive laws. Recent cases in which Stefan acted include:

An ICC arbitration seated in Paris between a Middle Eastern State and an Asian company in relation to a dispute arising out of a contract for the construction and exploitation of a solid waste management facility valued at over USD 500 million;

An ICC arbitration seated in Paris between a Qatari company and the largest car manufacturers in the world over the termination of a distribution agreement, with an amount in dispute over USD 150 million;

A dispute under the SCC Arbitration Rules concerning the construction of a power plant in Libya valued at over USD 400 million;

Two ICC arbitrations seated in Paris between one of the largest Italian power company and a State-owned company in relation to a privatization agreement entailing the modernization of the national power grid in Romania. The total amount in dispute was over EUR 1.5 billion;

A series of ICC arbitrations seated in Paris between one of the largest French companies specialized in construction and maintenance of transport infrastructure and a State-owned company, valued at over EUR 125 million concerning some of the largest infrastructure projects in Romania;

An investment treaty dispute initiated by a Dutch investor under the ICSID Convention against Romania in relation to bankruptcy of one of the largest insurance companies in the CEE region valued at EUR 350 million;

An investment treaty dispute between an Iranian investor and South Korea under the UNCITRAL Arbitration Rules in relation to the privatization of a State-owned company valued at over USD 500 million.

Stefan holds a Master of Laws in international arbitration from Stockholm University and is currently finalizing a Ph.D. in international law at the University of Vienna.

He has authored numerous articles and is a frequent lecturer in international arbitration. Stefan’s recent publications include:

“Energy Charter Treaty, the Protection of Renewable Energy Investments post Achmea”, in The future of Investment Treaty Arbitration in the EU. Energy Charter Treaty, Intra-EU BITs and Multilateral Investment Court, co-author, Kluwer International, (upcoming in May 2020);

“Treaty Counterclaims under the ICSID Convention” in ICSID Convention after 50 years: unsettled issues, Kluwer International 2017;

“A Sovereign’s Broken Promise: the Golden Ticket to a Billion-Dollar Award?”, Kluwer Arbitration Blog, June 21, 2016;

“Annulment of awards in Arbitration in Romania”, C. Leaua and F. A. Baias eds. Kluwer International, 2016;

“Construction law in Romania”, Co-author in Construction Law in Europe, European Society of Construction Law (ESCL) 2016;

“A story about broken promises and legitimate expectations: Bilcon of Delaware et al. v. Canada”, Kluwer Arbitration Blog, 11 September 2015.

Roxana Vornicu is recognized nationally and internationally for her public procurement, construction law and EU law expertise and she combines academic excellence with legal practice for almost a decade. As a practitioner, Roxana specializes in procurement, construction and administrative law. She has worked for one of the biggest law firm in the country (NNDKP) for over 7 years, managing and working in some of the highest profile administrative disputes of Romania. She handles complex strategies for procurement and administrative disputes and holds comprehensive knowledge and thorough understanding of EU procurement law.
Her academic accomplishments are stellar. She holds a Magna Cum Laudae PhD in procurement remedies and is regularly invited as a speaker to elite universities and conferences in Europe. Roxana is also a researcher at the King´s College London Centre of Construction law and Dispute Resolution in London.
At King´s, Roxana has been involved in several research programs, including one that looked into procurement strategies for incentivising collaborative delivery to optimise whole-life outcomes. She contributed to the drafting of the White Paper: 'Procurement Strategies for incentivising collaborative delivery to optimize whole-life outcomes’ developed by King’s Centre of Construction Law and the University of Cambridge Laing O'Rourke Centre for Construction Engineering and Technology and published by the Centre for Digital Built Britain (CDBB).

She worked on the report: 'Procuring Net Zero Construction' which was published by the Society of Construction Law and endorsed by the UK Government in the September 2022 ´Construction Playbook´ and ´Guidance on Promoting Net Zero Carbon and Sustainability in Construction.'
Since 2020, Roxana has been also a lecturer at Saïd Business School, Oxford University, teaching about international treaties and their impact on construction contracts. She has also taught at Stuttgart University, the International Construction: Practice and Law (MBE) course, lecturing on collaborative construction contracts.
Selective list of Publications:
• Vornicu R., P. Gianna, ´Pursuing Zero Carbon Targets Through Collaborative Construction Procurement and Contracting ´, International Construction Law Review, Part 4, 2020.

• Vornicu R., ´Special Issue on the Legal Remedies and Implications from the Fosen-Linjen Case ∙ Procurement Damages in the UK and France – Why So Different? ´, European Procurement & Public Private Partnership Law Review, Volume 14 (2019), Issue 4, Page 222 – 229

• Vornicu, R., The sufficiently serious breach test in Action for Damages in Public Procurement Law and a tale of three courts: The CJEU, The UK Supreme Court and the EFTA court, in press, European Public Law Journal, 2019.

• Vornicu, R., ‘The implementation of the Concession Directive in Romania’, published with Munus Rivista giuridica dei servizi pubblici, vol. 3/2018.

• Vornicu, R., Public Procurement below thresholds in the European Union: EU law Principles and national responses, EPPPL, (European Procurement and Public Private Partnership Law Review), 187, 2015, Co-authored with Dacian Dragos

• Vornicu, R., (2016), The rules on Performance of the Concession Contracts under the 2014 Concession Directive and the Triangle of Rights. A brief Dialectic, EPPPL 2/2016 (Vol. 11)

• Vornicu, R., Public liability in Romania, chapter in Tort Liability of Public Authorities in European Laws, Giacinto della Cananea and Roberto Caranta (eds), Oxford University Press, March 2021

• Vornicu, R., Commentary of Article 58 of Directive 2014/24/EU in European Public Procurement, A. Sanchez Graells & R. Caranta (eds), Edward Elgar Publishing, 2021

• Vornicu, R., Commentary of Article 63 of Directive 2014/24/EU in European Public Procurement, A. Sanchez Graells & R. Caranta (eds), Edward Elgar Publishing, 2021

• Vornicu, R., M. Andhov, ´A comparative view of the use of procurement techniques and electronic instruments by central purchasing bodies´, in Central Purchasing Bodies, M. Comba & C. Risvig (eds) Edward Elgar Publishing, 2021.

• Vornicu, R., , Central Purchasing Bodies in Romania, Central Purchasing Bodies, M. Comba & C. Risvig (eds) Edward Elgar Publishing, 2021, co-authored with Dacian C. Dragos.

• Roxana VORNICU, Tendencies and Developments in Romanian Administrative Law, in Jean-Bernard Auby (ed) LE FUTUR DU DROIT ADMINISTRATIF / THE FUTURE OF ADMINISTRATIVE LAW, Lexis Nexis 2019, pp. 151-158, co-authored with Dacian C. Dragos

• BIM and sustainability, chapter in Sustainability Through Public Procurement: The Way Forward – Reform Proposals, Sustainability Through Public Procurement: The Way Forward – Reform Proposals University of Oslo Faculty of Law Research Paper No. 2020-09 SMART Project Report

• R Vornicu, ´Legea 98/2016 privind achizițiile publice comentata´ Wolters Kluwer Online, Co-author Dacian Dragos.

• R Vornicu ´Concessions and PPP in Romania´, in Piotr Bogdanowicz, Roberto Caranta, Pedro Telles (eds), Public-Private Partnerships and Concessions in the EU, Edward Elgar 2020, Co-author Dacian Dragos.
nia´, in a collective volume published with Oxford University Press edited by Giacinto della Cananea & Roberto Caranta (in press).

Georgiana Sirbu practiced law at one of the biggest law firms in Bucharest, NNDKP. Following this, she was at the helm of the legal department of international energy giant AstroEnergy, part of the Chint Group with a presence in over 140 countries with more than 30,000 employees. As Head of Legal in Spain, she was in driving seat for the legal management of more than 15 offices in Spain, Romania, Chile, Mexico and Brazil.

Georgiana holds degrees in law and economics and a master’s degree in business law. She has taught at Pompeu Fabra University in Barcelona – a world-leading university ranked amongst the best universities in Spain where she has been involved in internationally renowned legal research groups.

She is valued for her ability to truly understand and empathize with her clients’ business interests and for her results-driven legal strategies and knowledge of public procurement, real estate and energy.