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- TEMA PËR MBROJTJEN E GRADËS SHKENCORE “DOKTOR” “IMPACT OF EUROPEAN UNION PUBLIC PROCUREMENT LEGISLATION
- REPUBLIKA E SHQIPËRISË UNIVERSITETI I TIRANËS FAKULTETI I DREJTËSISË DEPARTAMENTI I TË DREJTËS PUBLIKE PUNOI
- UNIVERSITA’ DEGLI STUDI DI TORINO: DIPARTIMENTO DI: GIURISPRUDENZA DOTTORATO DI RICERCA IN : IN DIRITTO, PERSONA E MERCATO CICLO: XXVII
- PROF. ROBERTO CARANTA ANNI ACCADEMICI: 2012-2014 SETTORE SCIENTIFICO-DISCIPLINARE DI AFFERENZA: IUS/10
- 2015 IV TABLE OF CONTENTS
- CHAPTER I .................................................................................................................... 23
- CHAPTER II: HISTORY AND PROGRESS OF THE PUBLIC PROCUREMENT SYSTEM IN ALBANIA AND THE EUROPEAN UNION ............................................................... 67
- 2015 VI CHAPTER III: PUBLIC PROCUREMENT PROCESS, RULES ACCORDING TO THE
- CHAPTER IV: AWARDING PROCEDURES AND PROCUREMENT TOOLS ACCORDING TO THE ALBANIAN SYSTEM; SIMILARITIES AND DIFFERENCES WITH THE
- CHAPTER V: THE APPROXIMATION OF THE ALBANIAN PROCUREMENT LEGISLATION WITH THE CORRESPONDING EU LEGISLATION; THE
- CHAPTER VI: CONLUSIONS AND RECOMMENDATIONS......................................................... 261
TEMA PËR MBROJTJEN E GRADËS SHKENCORE “DOKTOR” “IMPACT OF EUROPEAN UNION PUBLIC PROCUREMENT LEGISLATION ON THE ALBANIAN PUBLIC PROCUREMENT SYSTEM” REPUBLIKA E SHQIPËRISË UNIVERSITETI I TIRANËS FAKULTETI I DREJTËSISË DEPARTAMENTI I TË DREJTËS PUBLIKE PUNOI: Msc. REIDA KASHTA (SHAHOLLARI) UDHËHEQËS SHKENCORË PROF.DR.ARTA MANDRO UNIVERSITY OF TIRANA PROF. ROBERTO CARANTA UNIVERSITY OF TURIN Tirana, 2015 Impact of European Union public procurement legislation on the Albanian public procurement system 2015 II TITOLO DELLA TESI: “IMPACT OF EUROPEAN UNION PUBLIC PROCUREMENT LEGISLATION ON THE ALBANIAN PUBLIC PROCUREMENT SYSTEM” UNIVERSITA’ DEGLI STUDI DI TORINO: DIPARTIMENTO DI: GIURISPRUDENZA DOTTORATO DI RICERCA IN : IN DIRITTO, PERSONA E MERCATO CICLO: XXVII TESI PRESENTATA DA: Msc. REIDA KASHTA (SHAHOLLARI) TUTORS: PROFESSORI ROBERTO CARANTA E ARTA MANDRO COORDINATORE DEL DOTTORATO: PROF. ROBERTO CARANTA ANNI ACCADEMICI: 2012-2014 SETTORE SCIENTIFICO-DISCIPLINARE DI AFFERENZA: IUS/10 Tirana, 2015 Impact of European Union public procurement legislation on the Albanian public procurement system 2015 III This thesis is prepared under the Agreement for a Joint Doctoral Research Thesis between University of Tirana and University of Turin, according to which, conforming to the regulations of both countries, the two contracting parties organized the joint doctoral co-supervision programme. © All rights reserved: Reida Kashta (Shahollari) Impact of European Union public procurement legislation on the Albanian public procurement system 2015 IV TABLE OF CONTENTS INTRODUCTION......................................................................................................... XII I The objectives and scope of the study ........................................................................ XII II The structure ............................................................................................................ XIV III Methodology ......................................................................................................... XVII IV Relevance of the study ............................................................................................. XX V Review of the literature of the field ........................................................................... XX Abbreviations ................................................................................................................ XXII CHAPTER I .................................................................................................................... 23 PUBLIC PROCUREMENT, ITS ROLE AND IMPORTANCE ............................... 23 1.Introduction ................................................................................................................. 23 1.1 Role of public procurement .................................................................................. 23 1.1.1 Public procurement stages ..................................................................................... 24 1.1.1.a Impact of procurement stages on each -other ............................................ 27 1.1.1.b. The economic aspects of the public procurement system ................................. 29 1.2 Components of public procurement, scope of application and exclusions .............. 32 1.2.1. Contracting authority ............................................................................................ 32 1.2.1.1 Public authorities ................................................................................................ 34 1.2.1.1.a Associations of Contracting Authorities ......................................................... 35 1.2.1.1.b Central and joint purchasing .......................................................................... 36 1.2.1.2 Bodies governed by public law .......................................................................... 36 1.2.1.3 Condition for a body governed by public law .................................................... 37 1.2.2 Economic Operators .............................................................................................. 43 1.2.2.1 Legal form of the economic operator ................................................................. 43 1.2.2.2 Group of economic operators ............................................................................. 44 1.2.3 Public fund ............................................................................................................ 45 1.2.4 Public contracts ................................................................................................. 45 1.2.4.1 ‘Procurement’ contracts ..................................................................................... 49 1.2.4.1.a Public works contracts ..................................................................................... 49 1.2.4.1.b Public supplies contract ................................................................................... 50 1.2.4.1.c Public service contracts ................................................................................... 51 1.2.4.2 Mixed contracts .................................................................................................. 51 1.2.4.2.a Supplies/services ............................................................................................. 52 1.2.4.2.b Works/services ................................................................................................ 52 1.2.4.2.c Works/supplies ................................................................................................ 53 1.2.5 Exemptions ............................................................................................................ 53 1.2.5.1 Exemptions by reason of choice ......................................................................... 54 1.2.5.1.a The Defense procurement ................................................................................ 54 1.2.5.1.b Contracts requiring secrecy measures ............................................................. 55 Impact of European Union public procurement legislation on the Albanian public procurement system 2015 V 1.2.5.1.c Contracts governed by other rules ................................................................... 55 1.2.5.2 Exemptions due to the nature of the contract ..................................................... 57 1.2.5.2.a Contracts for the acquisition of land ............................................................... 57 1.2.5.2.b Broadcasting material and time ....................................................................... 57 1.2.5.2.c Arbitration and conciliation services ............................................................... 58 1.2.5.2.d Certain financial services ................................................................................ 58 1.2.5.2.e Employment contracts ..................................................................................... 58 1.2.5.2.f Research and development contracts ............................................................... 59 1.2.5.3 Services contracts provided on the basis of exclusive rights ............................. 59 1.3 The approach of means and goals in public procurement ........................................ 60 1.4 Basic factors which impact the regulation of a public procurement system- Summary ........................................................................................................................ 64 CHAPTER II: HISTORY AND PROGRESS OF THE PUBLIC PROCUREMENT SYSTEM IN ALBANIA AND THE EUROPEAN UNION ............................................................... 67 2. Introduction ................................................................................................................ 67 2.1 The beginnings of the public procurement concept in Albania................................ 67 2.2 Reintroducing the concept of public procurement after the ’90 ............................... 68 2.3 The First Law on Public Procurement in Albania .................................................... 69 2.4 Early steps for approximating public procurement framework to the EU Directives 70 2.4.1 Impact of the Stabilization and Association Agreement in public procurement ... 70 2.4.2 New law on public procurement and its approximation process........................... 72 2.4.3 Electronic procurement ......................................................................................... 77 2.5 History and progress of the EU public procurement system .................................... 78 2.5.1 Introduction ........................................................................................................... 78 2.5.2 Public procurement Directives .............................................................................. 80 2.5.2.1 The general programs ......................................................................................... 80 2.5.2.2 First procurement Directives ............................................................................. 82 2.5.2.3 Directives of Liberalization ............................................................................... 82 2.5.2.4 The first Directives of Coordination .................................................................. 83 2.5.2.5 Directives following the Single European Act .................................................. 84 2.5.2.6 Improving measures ........................................................................................... 85 2.5.2.7 Expansion and rationalization ............................................................................ 86 2.5.2.8 The Consolidated Directives ............................................................................. 88 2.5.2.8.a Main changes to the Directive for procurement in the public sector.............. 88 2.5.2.8.b Main changes in the Directive for procurement in the utilities’ sectors ........ 89 2.5.2.9 Amending of the Directive for review in the public and utilities’ sector ........... 89 2.5.2.10 The new Directives ........................................................................................... 90 2.5.2.10.i Major changes introduced by new Directives ............................................... 90 2.6 Summary ................................................................................................................. 93 Impact of European Union public procurement legislation on the Albanian public procurement system 2015 VI CHAPTER III: PUBLIC PROCUREMENT PROCESS, RULES ACCORDING TO THE ALBANIAN SYSTEM; SIMILARITIES AND DIFFERENCES WITH THE CORRESPONDING EU LEGISLATION ................................................................... 94 3. Introduction ................................................................................................................ 94 3.1 Public Procurement principles ................................................................................. 94 3.1.1.a Prohibition against discrimination on grounds of nationality ........................... 95 3.1.1.b Free movement of goods and prohibition of quantitative restrictions on imports and exports and measures having an equivalent effect .................................................. 96 3.1.1.c Freedom of establishment ................................................................................... 97 3.1.1.d Freedom to provide services .............................................................................. 98 3.1.2 Basic principles of public procurement ................................................................. 99 3.1.2.a Equal treatment ................................................................................................. 101 3.1.2.b Non-discrimination ........................................................................................... 104 3.1.2.c Competition ...................................................................................................... 107 3.1.2.d Transparency .................................................................................................... 109 3.1.2.e Proportionality .................................................................................................. 113 3.1.2.f Mutual recognition ............................................................................................ 114 3.1.3 Summary ............................................................................................................. 114 3.2 Publication of notices in a procurement procedure ................................................ 116 3.2.1 Prior Information Notice ..................................................................................... 117 3.2.2 Contract notices and contract award notices ....................................................... 118 3.2.3 Summary ............................................................................................................. 123 3.3 Technical specifications and the qualification criterion ......................................... 125 3.3.1 Technical specifications ...................................................................................... 126 3.3.1.1 References of technical specifications ............................................................. 128 3.3.1.3 Types of specification ...................................................................................... 133 3.3.2 Qualification criteria............................................................................................ 135 3.3.2.1 Grounds for exclusion of economic operators ................................................. 136 3.3.2.1.a Mandatory grounds for exclusion .................................................................. 136 3.3.2.1.b Optional grounds for exclusion ..................................................................... 138 3.3.2.2 Grounds for exclusion and groups of economic operators/consortia ............... 143 3.3.2.3 Mandatory grounds for exclusion and sub-contractors .................................... 144 3.3.2.4 Selection criteria ............................................................................................... 144 3.3.2.4.a Suitability to pursue the professional activity ............................................... 145 3.3.2.4.b Economic and Financial Standing ................................................................. 146 3.3.2.4.c Technical and/or professional ability ............................................................ 149 3.3.2.5 Possibility of requiring economic operators to supplement or clarify evidences 152 3.3.3 Summary ............................................................................................................. 153 3.4 Contract award criteria ........................................................................................... 154 3.4.1 Lowest price criteria ............................................................................................ 155 3.4.1.1 Limitations of using lowest price criteria ......................................................... 156 Impact of European Union public procurement legislation on the Albanian public procurement system 2015 VII 3.4.2 Most Economically Advantageous Tender criterion ........................................... 157 3.4.2.1 Advantages of using MEAT ............................................................................. 157 3.4.2.2 Criteria that may be taken into account to determine the MEAT .................... 158 3.4.2.2.a The cost-related criteria ................................................................................. 160 3.4.2.2.b Non-cost related criteria ................................................................................ 161 3.4.2.3 Selection criteria and award criteria; the difference between them ................. 161 3.4.2.4 Abnormally low tenders ................................................................................... 162 3.4.3 Summary ............................................................................................................. 164 CHAPTER IV: AWARDING PROCEDURES AND PROCUREMENT TOOLS ACCORDING TO THE ALBANIAN SYSTEM; SIMILARITIES AND DIFFERENCES WITH THE CORRESPONDING EU LEGISLATION. ................................................................ 166 4. Introduction .............................................................................................................. 166 4.1 Public procurement procedures .............................................................................. 167 4.1.1 Definitions and procedural aspects of competitive procurement procedures ..... 169 4.1.1.a Open procedure ................................................................................................ 169 4.1.1.b Restricted procedure ......................................................................................... 171 4.1.1.c Negotiated procedure with prior publication of a notice .................................. 175 4.1.1.d Competitive dialogue procedure ...................................................................... 179 4.1.1.e Design contests ................................................................................................. 181 4.1.2 Other competitive procurement procedures under PPL ...................................... 183 4.1.2.a Consultancy services ........................................................................................ 183 4.1.2.b Request for proposals ....................................................................................... 184 4.1.3 Negotiated procedure without prior publication of a notice- a noncompetitive procedure ...................................................................................................................... 185 4.1.3.1 Circumstances applied to all types of contracts ............................................... 186 4.1.3.2 Circumstances applied to supplies contracts .................................................... 190 4.1.3.3 Circumstances applied to service contracts ...................................................... 191 4.1.3.4 Circumstances applied to works and service contracts .................................... 191 4.2 Procurement tools ................................................................................................... 193 4.2.1 Framework agreements ....................................................................................... 193 4.2.1.1 Suitability of frameworks ................................................................................. 194 4.2.1.2 Setting up a framework agreement ................................................................... 196 4.2.2 Dynamic purchasing ............................................................................................ 197 4.2.3 Electronic auctions .............................................................................................. 199 4.3 Summary ................................................................................................................ 202 CHAPTER V: THE APPROXIMATION OF THE ALBANIAN PROCUREMENT LEGISLATION WITH THE CORRESPONDING EU LEGISLATION; THE RIGHT APPROACH OF THE CONCEPT. .............................................................. 204 Impact of European Union public procurement legislation on the Albanian public procurement system 2015 VIII 5.Introduction ............................................................................................................... 204 5.1 The approximation level of both legislations ......................................................... 204 5.1.1 Albanian PPL provisions compared to the corresponding Directive(s) provisions 205 5.1.2 EU Directive provisions which need to be transposed into the Albanian PPL ... 206 5.1.3 Summary ............................................................................................................. 251 5.2 The factors which impact the level of approximation ............................................ 254 5.2.1 Factors related to the status of the Directive(s) ................................................... 254 5.2.2 Factors related to the development stage of the country. .................................... 257 5.3 “Full approximation” vs. “copying” the EU System - Summary ........................... 258 CHAPTER VI: CONLUSIONS AND RECOMMENDATIONS......................................................... 261 6.Introduction ............................................................................................................... 261 6.1 Final conclusions .................................................................................................... 261 6.2 Recommendations .................................................................................................. 272 Download 5.49 Kb. 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