„Apoteka Beograd” i posle primene traži „rupe u Zakonu”
Prva javna nabavka posle 10 godina izbegavanja Zakona
Nakon 10 godina uspešnog izbegavanja primene Zakona o javnim nabavkama, „Apoteka Beograd“ je u maju ovde godine sprovela hitnu nabavku lekova vrednu oko dve milijarde dinara. Nabavka je sprovedena u pregovaračkom postupku u kom naručilac neposredno pregovara sa jednim ili sa više ponuđača o predmetu javne nabavke.
Apoteka je od 2004. do 2013. nabavke vršila po internim procedurama, bez sprovođenja postupka javne nabavke.
Kada je 2004. godine izmenjen Zakon o javnim nabavkama, iz njega su izuzeti naručioci koji vrše nabavku radi dalje prodaje, a nemaju “posebna ili isključiva prava”, dakle nisu monopolisti. Od tada „Apoteka Beograd“, počinje prepisku o tome da li je obavezna da se drži Zakona ili ne, najpre sa Upravom za javne nabavke, zatim sa Ministarstvom finansija i Ministarstvom zdravlja. Tokom svih tih godina, nijedna institucija nije potvrdila da se izuzeće odnosi i na apotekarske ustanove. Tokom svih tih godina, nijedna institucija nije potvrdila da se izuzeće odnosi i na apotekarske ustanove.
Apoteka je tvrdila da nema isključiva prava za izdavanje lekova na recept (isključivo pravo bi značilo samo ja, a posebno – ti i ja), ali je previdela, slučajno ili ne, činjenicu da lekovi koji se izdaju na recept nisu za “dalju prodaju”, odnosno da to nije delatnost za koju je Apoteka osnovana.
U svom izveštaju iz 2012. Godine, Državna revizorska institucija je jasno pokazala da smatra da Apoteka mora da poštuje ZJN kada su u pitanju nabavke lekova koji se izdaju na recept.
Apoteka Beograd
Iako su Apoteke konačno sprovele nabavku, ona je imala određene propuste, koji mogu da joj omoguće bonitete, kao i do sada.
Najpre, Apoteka je visoko vrednovala popust koji joj dobavljač daje (kasa skonto), u zavisnosti od toga kada će Apoteka platiti robu, da li u roku od 30, 45, ili 60 dana. Time je cenu po kojoj plaća lek, vrednovala po dva osnova, u odnosu na cenu I u odnosu na popust, i to na nejednak način. Ovo može dovesti do toga, da, na primer, ponuđač kome će na kraju biti plaćena veća cena bude bolje plasiran od konkurenta. Zapravo, problem je u nelogičnim kriterijumima vrednovanja ponuda, koji su suprotni načelu ekonomičnosti i efikasnosti.
“To bi se moglo izbeći kada bi naručilac definisao konkretno vreme kada će biti u stanju da izvrši uplatu, i onda u skladu sa tim birao najbolje ponude”, kaže Rade Đurić, građanski nadzornik.
Kasa skonto
Kasa skonto je popust koji prodavac daje ako mu se roba plati ranije.
Stoga, logično bi bilo, da se veći popust daje ukoliko se plaćanje vrši u što kraćem roku. U nabavci iz 2013. se, međutim, na rang listama ponuđača, može videti da je dat isti popust na sve rokove, ili je čak bio veći na duži ili srednji rok.
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Pošto je bilo identičnih ponuda dobavljača, kako kaže Dragana Simić, v.d. direktor Apoteke, birani su oni koji su imali najviše partija. Ovaj kriterijum nije naveden u konkursnoj domumentaciji.
U pitanjima i odgovorima koji se mogu videti na Portalu, a koje je Apoteka uputila Upravi, nalazi se sledeći odgovor: “Prednost će se dati ponuđaču koji bude izabran kao najpovoljniji za veći broj partija”.
Član 84. Zakona o javnim nabavkama, međutim, propisuje da će naručilac u konkursnoj dokumentaciji, dakle unapred: “Odrediti elemente kriterijuma na osnovu kojih će dodeliti ugovor u situaciji kada postoje dve ili više ponuda sa jednakim brojem pondera ili istom ponuđenom cenom.”
Popust vs Zakon
Mogući kriterijumi za ocenjivanje ponude su - ekonomski najpovoljnija ponuda ili najniža pouđena cena. Apoteka, kao naručilac, opredelila se za kriterijum ekonomski najpovoljnije ponude, kod koga se cena bodovala sa 65% od ukupnog broja poena, a kasa skonto sa 35%.
Iz konkursne dokumentacije može se videti da je naručilac, u ovom slučaju Apoteka, predvideo mogućnost plaćanja u određenom roku. To bi značilo da ponuđači mogu da predlože neki rok, od 30, 45 ili 60 dana i navedu koliki će popust biti na ponuđenu cenu, za konkretan rok. Te ponude, vrednuju se odgovarajućim brojem pondera u okviru „uslova plaćanja“.
U Zakonu o javnim nabavkama, izričito stoji da naručilac ne može predvideti popust u konkursnoj dokumentaciji kao element kriterijuma. Doduše, iako to zabranjuje, Zakon ne navodi nikakvu sankciju za kršenje ovog uslova.
“Popust na ponuđenu cenu je metod određivanja cene koji ponuđač može ponuditi u ponudi samo kada je predmet javne nabavke oblikovan u više partija, a naručilac taj metod ne može predvideti u konkursnoj dokumentaciji kao element kriterijuma.” ZJN, član 3, tačka 34.
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U ovoj nabavci, naručilac, ustvari, vrednuje popust na cenu, odnosno vrednuje krajnju cenu koju će platiti. Uobičajeno je da se vrednuju neki drugi uslovi, kao na primer ponuđena cena, kvalitet, troškovna ekonomičnost i slično. Tako se vrednost, odnosno cena koju Apoteka konacno placa, ne zna, odnosno nece biti ona koja je navedena kao cena iz ponude, varira u zavisnosti od toga kada ce Apoteka platiti dobavljacima.
Ponovni krug pregovaranja
Naručilac je takođe, kod određenih partija, organizovao ponovni krug pregovaranja, čime je postupio suprotno onome što je sam predvideo konkursnom dokumentacijom. Ovaj potez se može oceniti kao svrsishodan, da se ne bi nastavile nestašice, ali je svakako zakonski sporan, jer niti je predviđen konkursnom dokumentacijom, niti pravilima sprovođenja pregovaračkog postupka bez objavljivanja javnog poziva.
Apoteka je pribegla ovakvom rešenju jer za određene partije nije bilo ponuda, ili su ponude bile iznad cene koju je Republički fond za zdravstveno osiguranje, koji daje nadoknadu za ove lekove, (RFZO) predvideo. Na ovaj način, neprihvatljive ponude su se pokušale učiniti prihvatljivim.
„Organizovanje ponovnog kruga pregovaranja nije bilo predviđeno konkursnom dokumentacijom, niti predviđeno pravilima sprovođenja pregovaračkog postupka bez objavljivanja poziva iz Zakona o javnim nabavkama”, kaže Đurić. „Neophodno je da se u budućnosti ovakve situacije izbegnu tako što će se uraditi bolja priprema i analiza trenutne situacije sa lekovima. To bi trebalo da bude posao ne samo apotekarskih ustanova, kao naručilaca, već pre svega RFZO, koji u krajnjoj instanci, određuje maksimalne cene koje će biti plaćene za pojedine lekove.”
Primećeno je i to da i druge apotekarske ustanove na teritoriji Republike Srbije sprovode postupak nabavke i pripremaju se po ugledu na „Apoteku Beograd”. To ne sme postati praksa. Neophodno je da se ovaj problem što pre analizira, umanji ili potpuno sanira, smatra Đurić.
Nakon ove, „Apoteke Beograd” su raspisale novu javnu nabavku po metodu otvorenog postupka, koji je, po pravilu, najtransparentniji. Gotovo deset godina Apoteke su se opirale da lekove nabavljaju preko javnih nabavki, a kada su to konačno i uradile, pokušale su da zadrže “stari način poslovanja”. Ostaje da se vidi kako će izgledati kraj ovog procesa koji je u toku. Hoće li opet proći decenija do sledeće promene.
Maša Lujić
Milica Jović
Bojana Pavlović
Ovaj tekst nastao je u okviru projekta Mladi novinari u borbi protiv korupcije koji preko Agencije za borbu protiv korupcije finansira Program Ujedinjenih nacija za razvoj (UNDP). Mišljenje i stavovi u ovom članku ne moraju neophodno predstavljati mišljenja i stavove Agencije za borbu protiv korupcije i UNDP-a.
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