Georgieva Using Transparency Against Corruption in Public Procurement

A Comparative Analysis of the Transparency Rules and their Failure to Combat Corruption
1. Auflage 2017
ISBN: 978-3-319-51304-1
Verlag: Springer Nature Switzerland
Format: PDF
Kopierschutz: 1 - PDF Watermark

E-Book, Englisch, Band 11, 286 Seiten

Reihe: Studies in European Economic Law and Regulation

This book examines corruption in public procurement in three Member States of the EU, reviewing their different approaches to combating corruption, and the extent to which the transparency principle is applied in their procurement systems. The focus of the work is on the contrast between the unsuccessful procurement legislation of a relatively young Member State (Bulgaria) and its attempt to curb corruption by expanding the scope of application of the transparency principle, and two examples of procurement systems where corruption is limited adequately, without an excess of information procedural requirements (Germany and Austria). The book scrutinizes the transparency rules, procurement participants, and responsible institutions in the award of procurements in these countries. It discusses in detail the types of infringements involving corruption as well as their link to infringements of the transparency principle. It compares and examines the systems of control and appeal against a contracting authority's actions within the various legislative schemes, and highlights the legislative weaknesses which fail to reduce corruption. The comparative analysis between the Bulgarian public procurement system and the German and Austrian systems is carried out through detailed research not only with regard to adherence to the transparency principle, but also to the use of other mechanisms to limit corruption, insofar as these solutions are appropriate and could be adapted in other countries currently lacking sufficient anti-corruption measures.

Dr Irena Georgieva is a Bulgarian attorney and expert in public procurement law with over 15 years of practice. Currently she works as a legal advisor and manager of her own niche law office in Sofia focused on public procurement and data protection matters. Dr Georgieva has graduated in law from the Sofia University (Master in Law 2003) and has also a post graduate qualification in accountancy from the University of National and World Economy, Sofia (2005). She obtained her doctoral degree in the University of Groningen, Netherlands (PhD 2015), with dissertation thesis on public procurement law. She takes part in many undertakings related to public procurement matters - round tables, open discussions and seminars - and is also a regular author of public procurement articles published in domestic and international law & business magazines. She is a member of the Sofia Bar Association.

Autoren/Hrsg.

Georgieva, Irena

Inhaltsverzeichnis

1;Foreword;6
2;Preface;8
3;Contents;10
4;About the Author;14
5;Abbreviations;15
6;Table of Cases of the European Court of Justice and the General Court (in chronological order);20
7;Chapter 1: Introduction;22
7.1;1.1 Aspects Analysed;22
7.2;1.2 Benchmarking;23
8;Chapter 2: The EU Principles in Public Procurement. Transparency – Origin and Main Characteristics;25
8.1;2.1 The Procurement Principles. The Concept of Transparency;25
8.2;2.2 Transparency – How Does it Start?;29
8.2.1;2.2.1 The Meaning of Transparency;31
8.2.2;2.2.2 Features and Functions of Transparency;33
8.2.2.1; Providing the Right Amount of Information;34
8.2.2.2; Increase of Competition;35
8.2.2.3; Control, Collaboration and Participation in Government Policies;36
8.2.2.4; Anticorruption Instrument;38
8.2.2.5; A Moral Postulate;39
8.3;2.3 Transparency in the EU Public Procurement Legislation and the Work of International Organisations. Evolution of the Principle;39
8.3.1;2.3.1 The Treaties and the European Court of Justice;40
8.3.2;2.3.2 The Directives;42
8.3.3;2.3.3 The Work of International Organisations Towards Transparency in Public Procurement Procedures;44
8.3.3.1; WTO;45
8.3.3.2; OECD;46
8.3.3.3; Transparency International;46
8.3.4;2.3.4 Evolution of the Transparency Principle in the Field of Public Procurement;47
8.3.4.1; Traditional Perception;47
8.3.4.2; Anticorruption Aspect. Shift of Priorities;50
8.4;2.4 Progress and Degradation of the Principle of Transparency. The Example of Bulgaria;54
8.4.1;2.4.1 Historical Predisposition;54
8.4.2;2.4.2 Transparency in the Bulgarian Procurement Legislation;60
8.5;2.5 Concluding Observations;64
8.6;Bibliography;68
9;Chapter 3: Corruption – Definition and Characteristics;70
9.1;3.1 The Reasons for This Chapter;70
9.2;3.2 Corruption – Common Definitions;71
9.2.1;3.2.1 Forms of Corruption;72
9.2.2;3.2.2 Origins;74
9.2.3;3.2.3 Causes and Consequences;76
9.2.4;3.2.4 International Organisations Against Corruption;76
9.3;3.3 Corruption in Figures;77
9.4;3.4 Corruption in Government Procurement – A Global Review;78
9.5;3.5 Members States with Higher Levels of Corruption – The Example of Bulgaria;82
9.5.1;3.5.1 Historical Explanation of the Predisposition to Corruption;82
9.5.2;3.5.2 Economic Factors for Corruption in Bulgaria;86
9.5.3;3.5.3 Corruption in Bulgaria in Figures;88
9.5.3.1; CPI;88
9.5.3.2; CMS;90
9.5.4;3.5.4 Corruption in Government Procurement;92
9.6;3.6 Concluding Observations;94
9.7;Bibliography;94
10;Chapter 4: The Public Procurement System in Bulgaria: Authorities, Participants, Control and Achievements;96
10.1;4.1 What Is Examined, and Why?;96
10.2;4.2 The Participants;97
10.2.1;4.2.1 Contracting Authorities;97
10.2.2;4.2.2 Bidders;99
10.3;4.3 Authorities Involved in the Public Procurement Process. Controlling and Appellate Authorities;100
10.3.1;4.3.1 Council of Ministers;100
10.3.2;4.3.2 Controlling Authorities;100
10.3.2.1; The Public Procurement Agency;102
10.3.2.2; National Audit Office and Public Financial Inspection Agency;106
10.3.3;4.3.3 Appellate Authorities;111
10.3.3.1; Commission for Protection of Competition;112
10.3.3.2; Supreme Administrative Court;113
10.4;4.4 Why Not Less Burdensome But More Effective?;115
10.5;4.5 Some Warriors in the Uneven War Against Corruption in Bulgarian Public Procurement;116
10.5.1;4.5.1 Who Are They?;117
10.5.2;4.5.2 Center for the Study of Democracy;118
10.5.3;4.5.3 Transparency International in Bulgaria;120
10.5.4;4.5.4 The BORKOR Project – An Attempt to Transfer German Experience in Bulgaria;125
10.5.4.1; Pre-qualification;128
10.5.4.2; Central Public Procurement Services;129
10.6;4.6 Where Does Bulgaria Stand Now?;133
10.7;Bibliography;134
11;Chapter 5: Infringements in Procurement Procedures. Corruption Loopholes and Practices;136
11.1;5.1 Methodology;136
11.2;5.2 Statistics;138
11.3;5.3 Types of Infringements and Incidents of Corruption;142
11.3.1;5.3.1 Choice of Object Phase;142
11.3.1.1; Disbursement of Public Funds Without Regard to Legal Rules;142
11.3.1.2; Splitting/Subdividing Public Procurements with the Purpose of Evading the Law;144
11.3.1.3; Unsubstantiated Implementation of a Negotiated Procedure Without Prior Publication of a Contract Notice;148
11.3.2;5.3.2 Announcement Phase;151
11.3.2.1; Setting Very Short Time Limits for Tender Preparation;151
11.3.2.2; Lack of Coordination Between Documents;153
11.3.2.3; Inclusion of Selection Criteria and/or Technical Specifications Which Unreasonably Restrict Participation in the Procurement or Offer an Advantage to One of the Tenderers/Candidates;155
11.3.2.4; Mixing Up Selection and Contract Award Criteria;160
11.3.2.5; Infringement of, and Changes in, the Evaluation Methodology;162
11.3.3;5.3.3 Procedure Conduct Phase;166
11.3.3.1; Unjustified Cancellation or Continuance of Procedure on Behalf of Contracting Authorities;166
11.3.3.2; Participation and Award to ‘Related Parties’. Conflict of Interest. Bid Rigging;169
11.3.3.3; Unreasonably Favourable Offers;171
11.3.4;5.3.4 Contract Implementation Phase;174
11.3.4.1; Unwarranted Amendments in the Course of Implementation of Public Procurement Contracts;174
11.4;5.4 One Verdict, Among ... Few;177
11.4.1;5.4.1 Background;177
11.4.2;5.4.2 Infringements Found;178
11.4.2.1; Inclusion of Requirements Which Unreasonably Restrict Participation in the Procurement and/or Offer an Advantage to One of the Tenderers;178
11.4.2.2; Infringement of, and Changes to, the Evaluation Methodology;179
11.4.2.3; Unjustified Elimination of Tenderers and Continuing the Procedure with Only One Candidate;179
11.5;5.5 Findings and Future Challenges;181
11.5.1;5.5.1 Relevant Conclusions;181
11.5.2;5.5.2 New Legislative Decisions – New Corruption Loopholes;182
11.5.2.1; Reserved Awards;183
11.5.2.2; Preliminary Market Consultations;184
11.5.2.3; Self-Cleaning Mechanism;184
11.6;Bibliography;186
12;Chapter 6: The German Procurement System – A Successful Battle Against Corruption;187
12.1;6.1 Benchmarking Mechanism;187
12.2;6.2 Why Germany?;189
12.2.1;6.2.1 Legislative Similarities;189
12.2.2;6.2.2 Corruption Level;189
12.2.3;6.2.3 Public Procurement System;192
12.2.4;6.2.4 Socioeconomic Differences;193
12.3;6.3 Main Characteristics of the German Public Procurement System – Applicable Legislation;196
12.4;6.4 Main Principles. Transparency Obligations;198
12.5;6.5 The Integrity Pact as a Tool to Optimise Transparency and Curb Corruption;200
12.6;6.6 Contracting Authorities Under GWB;202
12.7;6.7 Procedures;202
12.8;6.8 Award Criteria;204
12.9;6.9 Appeal;205
12.10;6.10 Corruption in Public Procurement and the German Way to Combat It;210
12.10.1;6.10.1 Corruption Prevention Legislation;210
12.10.2;6.10.2 Anticorruption Strategies and Institutions;212
12.11;6.11 Successful Pillars to Raise Against Corruption in the Award of Public Contracts;214
12.11.1;6.11.1 Adequate Legislative Decisions Providing Clear and Unambiguous Rules;215
12.11.2;6.11.2 Modernised and Facilitated Conduct of Procurement Procedures;221
12.11.3;6.11.3 Centralised Procurement;225
12.12;6.12 Lessons to Be Learned from Germany;228
12.13;Bibliography;230
13;Chapter 7: Public Procurement in Austria – Reforms Limiting Corruption;232
13.1;7.1 Why Austria?;232
13.1.1;7.1.1 Legislative Similarities;232
13.1.2;7.1.2 Corruption Level;234
13.1.3;7.1.3 Public Procurement System;236
13.1.4;7.1.4 Socioeconomic Differences;237
13.2;7.2 Main Characteristics of the Austrian Public Procurement System – Applicable Legislation;240
13.3;7.3 Main Principles. Transparency Obligations;243
13.4;7.4 Contracting Authorities Under BVergG;246
13.5;7.5 Procedures;251
13.6;7.6 Award Criteria;253
13.7;7.7 Appeal;255
13.8;7.8 Corruption Prevention;261
13.8.1;7.8.1 Corruption Prevention Legislation;262
13.8.2;7.8.2 Responsible Bodies;265
13.8.3;7.8.3 Other Anticorruption Efforts in Public Procurement;270
13.9;7.9 What Can Be Borrowed from Austria?;272
13.10;Bibliography;274
14;Chapter 8: Conclusions;276
14.1;8.1 Groups of Conclusions;276
14.1.1;8.1.1 Transparency Principle Efficiency Against Corruption;276
14.1.2;8.1.2 Control and Appellate Authorities Effectiveness;279
14.1.3;8.1.3 Outline of Good Practices;280
14.2;8.2 Recommendations;284