Otkrivanje i suzbijanje krivičnog djela zloupotreba u vezi sa javnom nabavkom
Abstract: The criminal offence of abuse in connection with public procurement belongs to the newer criminal offences against payment transactions and business operations with elements of corruption. According to positive regulations, the state is obliged to open a tender for its own needs and the needs of companies in its majority ownership for the purpose of procurement of goods, provision of services and implementation of public works above a certain monetary amount, which would guarantee transparency and legality. However, in practice, it has been shown that public procurement is in the zone of high risk of violating the law and good practices. A very complex public procurement procedure and an increasingly pronounced conflict of interest between public office holders and the business community, as well as other important factors, have caused a large number of abuses in this area. Recognizing the dangers of this criminal phenomenon, in December 2023, Montenegro criminalized abuse in connection with public procurement in the group of criminal offences against payment transactions and business operations. The Criminal Code foresees seven forms of this delict. Being of the first form includes the submission of an offer based on false data or an illegal agreement with other bidders or the undertaking of another illegal action by the perpetrator with the intention of influencing the decision of the public procurement authority. The second form includes the execution of all three forms of the criminal offence of abuse of official position by the perpetrator who violates the laws in this area, causing damage to public funds. If the perpetrator adjusts the terms of the public procurement to a certain entity or enters into a contract with a bidder whose offer is in contradiction with the terms of the tender documentation, he commits the third form of this tort. The fourth form includes types of abuse of official position by the perpetrator who gives, takes over or contracts jobs for his activity or the activity of a person in relation to which there is a conflict of interest. A more serious form of this delict exists if it was committed in connection with public procurement whose value exceeds the amount of one hundred thousand euros. A special form is prescribed if the act was committed to the detriment of the financial interests of the EU. The privileged form is prescribed in paragraph 7 of Article 272c and provides for the possibility of exemption from punishment for the perpetrator who voluntarily reveals that the offer is based on false data or on an illegal agreement with other bidders or the perpetrator has taken other actions with the intention of influencing the decision-making of the contracting authority before that the public procurement contract is concluded. The methodology for detecting this criminal offense is based on the investigative and operational practice of the police and the State Prosecutor’s Office in reconnaissance and investigation.
Key words: criminal offence, public procurement, detection, suppression.
Rezime: Krivično djelo zloupotreba u vezi sa javnom nabavkom spada u novija krivična djela protiv platnog prometa i privrednog poslovanja sa elementima korupcije. Saglasno pozitivnim propisima država je u obavezi da za svoje potrebe i potrebe firmi u njenom većinskom vlasništvu u svrhu nabavke robe, pružanja usluga i realizacije javnih radova iznad određenog novčanog iznosa raspusuje tender koji bi garantovao transparentnost i zakonitost. Međutim, u praksi se pokazalo da su upravo javne nabavke u zoni visokog rizika od kršenja zakona i dobrih praksi. Vrlo složen postupak javnih nabavki i sve izraženiji konflikt interesa između nosilaca javnih funkcija i biznis zajednice kao i drugi bitni činioci prouzrokovali su veliki broj zloupotreba u ovaj oblasti. Prepoznajući opasnosti od ovog kriminalnog fenomena Crna Gora je u decembru 2023. godine inkriminisala zloupotrebu u vezi sa javnom nabavkom u grupi krivičnih djela protiv platnog prometa i privrednog poslovanja. Krivični zakonik predviđa sedam oblika ovog delikta. Biće prvog oblika obuhvata podnošenje ponude zasnovane na lažnim podacima ili protivpravni dogovor sa ostalim ponuđačima ili preduzimanje druge protivpravne radnje od strane učinioca u namjeri da se na taj način utiče na donošenje odluke naručioca javne nabavke. Drugi oblik obuhvata izvršenje sva tri oblika krivičnog djela zloupotreba službenog položaja od strane učinioca koji krši zakone iz ove oblasti prouzrokujući štetu javnim sredstvima. Ukoliko učinilac određenom subjektu prilagođava uslove javne nabavke ili sklapa ugovor sa ponuđačem čija je ponuda u suprotnosti sa uslovima iz dokumentacije za nadmetanje ostvaruje biće trećeg oblika ovog delikta. Četvrti oblik obuhvata vidove zloupotrebe službenog položaja od strane učinoca koji daje, preuzima ili ugovara poslove za svoju djelatnost ili djelatnost lica u odnosu na koje postoji sukob interesa. Teži oblik ovog delikta postoji ukoliko je izvršen u vezi sa javnom nabavkom čija vrijednost prelazi iznos od sto hiljada eura. Poseban oblik propisan je ako je djelo učinjeno na štetu finansijskih interesa EU. Privilegovani oblik propisan je u stavu 7 člana 272c i predviđa mogućnost oslobođenja od kazne učinioca koji dobrovoljno otkrije da se ponuda zasniva na lažnim podacima ili na nedozvoljenom dogovoru sa ostalim ponuđačima ili je učinilac preuzeo druge radnje u namjeri da se utiče na donošenje odluka naručioca prije nego što se zaključi ugovor o javnoj nabavci. Metodika otkrivanja ovog krivičnog djela zansnovana je na istražnoj i operativnoj praksi policije i državnog ružilaštva u izviđaju i istrazi.
Ključne riječi: krivično djelo, javna nabavka, otkrivanje, suzbijanje.