Podział zamówienia

Zdecydowany nacisk na podział zamówień na części jest konsekwencją implementowania przepisów unijnych do polskiego systemu prawnego. Dzisiaj zamawiający w przypadku każdego zamówienia zastanawiają się w jaki sposób uzasadnić brak podziału. I nic w tym dziwnego, wszak w protokole postępowania o udzielenie zamówienia publicznego znajduje się miejsce do wpisania przyczyn braku podziału, a art. 96 ust. 1 pkt 11) Prawa zamówień publicznych z 29.01.2004 r. (Dz.U. z 2017 r. poz. 1579), dalej pzp, traktuje o obowiązku podania powodów niedokonania podziału zamówienia na części.

Czytając przepisy w ten sposób dochodzimy do zupełnie nieuzasadnionego wniosku, że każde zamówienie jest podzielne i w przypadku każdego zamówienia należy wyczerpująco i wiarygodnie podać przyczyny braku podziału. Weźmy przykład pierwszy z brzegu: zamówienie na usługę zaprojektowania budynku szkoły. Czy w takiej sytuacji zamawiający powinien podzielić to zamówienie na części według branż do zaprojektowania i w wyniku tak przeprowadzonego postępowania podpisać umowy np. z 6-cioma wykonawcami, z których każdy zaprojektuje jakąś część zamówienia ? Kto będzie w takiej sytuacji odpowiadał za integralność dokumentacji ? Czy zamawiający powinien, i czy w ogóle ma takie narzędzia by przymusić wykonawców do współpracy między sobą ?

O potrzebie dzielenia zamówienia na części w celu dostosowania ich do potrzeb małych i średnich przedsiębiorstw, dalej MSP traktuje motyw 78 Dyrektywy Parlamentu Europejskiego i Rady 2014/24/UE z 26.02.2014 r. w sprawie zamówień publicznych, uchylającą dyrektywę 2004/18/WE, dalej Dyrektywa.  Część motywu 78 Dyrektywy brzmi: „…aby zwiększyć konkurencję, instytucje zamawiające należy w szczególności zachęcać do dzielenia dużych zamówień na części. Podziału takiego można dokonać na zasadzie ilościowej, tak by wielkość poszczególnych zamówień lepiej odpowiadała możliwościom MSP, lub na zasadzie jakościowej, z uwzględnieniem różnych zaangażowanych branż i specjalizacji, tak by w większym stopniu dostosować treść poszczególnych zamówień do wyspecjalizowanych sektorów MSP, lub według różnych kolejnych etapów projektu”. Na podstawie tego zapisu powstał przepis art. 96 ust. 1 pkt 11) pzp. Przepis art. 96 ust. 1 pkt 11) pzp nie pozostawia zamawiającemu swobody, brzmi on zdecydowanie „W trakcie prowadzenia postępowania o udzielenie zamówienia publicznego zamawiający sporządza protokół, zawierający co najmniej: 11) powody niedokonania podziału zamówienia na części”. Niezależnie więc od tego, czy przedmiot zamówienia jest, czy nie jest podzielny zamawiający muszą wypełnić tą część w protokole. I co najważniejsze, zrobić to powinni jeszcze przed wszczęciem postępowania. Wskazuje na to zarówno miejsce w protokole, odnoszące się do ogólnych informacji o postępowaniu, jak i to, że kształt postępowania powinien być ustalony przez zamawiającego przed jego wszczęciem. Wówczas bowiem zamawiający wie jak ma prowadzić postępowanie – czy jako częściowe, czy nie. W praktyce część zamawiających ignoruje wstęp do przepisu brzmiący „w trakcie prowadzenia postępowania…” i robi protokół po zakończeniu postępowania, albo w momencie, gdy ktoś się go domaga. Wtedy, bez wcześniejszego przemyślenia kwestii podziału rzeźbią przyczyny nie podzielenia, niezależnie od tego, czy zamówienie podzielić się da, czy też nie. To zła praktyka i warto ją zmienić 🙂

Podział różnych rodzajowo zamówień

W praktyce możemy mieć do czynienia z zamówieniami o których traktują przepisy art. 5b i 5f pzp. Chodzi o konieczność podziału zamówień, do stosowania których mają zastosowanie różne przepisy ustawy pzp – roboty budowlane, usługi i dostawy. Przykładem, może być zamówienie na wybudowanie obiektu i wyposażenie budynku w meble. Mamy tu roboty budowlane i dostawę i o ile postępowanie jednego rodzaju nie jest częścią drugiego i z przyczyn technologicznych, technicznych, organizacyjnych, ekonomicznych, celowościowych, etc. mogą one zostać rozdzielone, należy to uczynić i przeprowadzić dwa postępowania. Przykładem, gdzie podział w takim przypadku nie jest jednak możliwy jest konieczność ujęcia przedmiotu dostawy, wykonywanego na wymiar, posiadającego określone parametry, w procesie technologicznym podczas wykonywania roboty budowlanej. Co do zasady jednak, oczywistość dzielenia zamówień różnych rodzajowo jest przesądzona.

Podział jednolitego zamówienia na części

Duże kłopoty powoduje jednak interpretowanie przepisów o podziale zamówienia jednorodnego. Co nas ratuje przed szaleństwem dzielenia wszystkiego i zawsze ? No właśnie przepisy tejże samej ustawy pzp. Nie bez powodu często nie stosujemy przepisów wprost, ale je interpretujemy. Mając na uwadze zasadę racjonalnego ustawodawcy, należy skorzystać z przepisu art. 36aa ust. 1 pzp, który traktuje o tym, że zamawiający ma uprawnienie do podziału zamówienia. Żaden przepis ustawy pzp wprost nie nakazuje podziału. Zamieszanie wprowadza jedynie art. 96 ust. 1 pkt 11) pzp, jednakże przepisu tego nie należy interpretować w oderwaniu od właściwego rozumienia intencji motywu 78 Dyrektywy.

Jak więc jest ?

Niektóre zamówienia nie będą w ogóle podlegały podzieleniu, bo są niepodzielne. Podział niektórych zaś nie będzie celowy ani nawet bezpieczny. Podzielenie na części (według branż) zamówienia na roboty budowlane, zagrażałoby prawidłowości ukończenia procesu budowlanego (lub w ogóle go uniemożliwiało), a podział na części (branże) usług projektowych dla projektu budowlanego zagrażałoby integralności takiej dokumentacji (Zamawiający nie dysponuje bowiem narzędziami prawnymi by zmusić różnych Wykonawców by na etapie projektowania poszczególnych branż współpracowali ze sobą). Zamawiający w każdym przypadku powinien najpierw ocenić więc, czy podział zamówienia jest możliwy, czy podział nie spowoduje dla niego poważnych, negatywnych konsekwencji (w postaci choćby np. utraty gwarancji z powodu naruszenia przez jednego wykonawcę przedmiotu zamówienia wykonanego przez  innego), czy podział zamówienia nie spowoduje nadmiernych kosztów po stronie zamawiającego (ekonomicznie dla zamawiającego byłoby, aby zamówienie wykonał jeden wykonawca). Brak podziału musi być związany z przyczyną istotną, zasadniczą, nie może zaś być spowodowany jedynie brakiem woli zamawiającego, czy jego wygodą. Podkreśla to Urząd Zamówień Publicznych w swojej opinii: „Należy zauważyć, że ustawodawca europejski za okoliczność uzasadniającą rezygnację z podziału na części uznał jedynie nadmierne trudności czy koszty oraz brak koordynacji, skutkujący poważną groźbą nieprawidłowej realizacji zamówienia. A contrario uznać należy, iż obawy związane z ewentualnymi niewielkimi trudnościami czy kosztami bądź nieznacznymi problemami z koordynowaniem działań wykonawców, a tym bardziej wygoda zamawiającego, nie powinny stanowić dostatecznej podstawy do zaniechania podziału zamówienia na części. Jednakże zastrzec należy, że ocena ta powinna być dokonywana każdorazowo z uwzględnieniem wszystkich okoliczności danego przypadku” (ww.uzp.gov.pl, Pytania i odpowiedzi dotyczące przepisów nowelizacji ustawy Pzp. Opinia nt. Podział zamówienia na części).

Mając na uwadze regułę reductio ad absurdum (sprowadzenie do absurdu; zaniechanie rozumowania w przypadku uzyskania nonsensownych wniosków) należy odrzucić taką interpretację motywu 78 Dyrektywy i art. 96 ust. 1 pkt 11) p.z.p., która prowadzi do absurdalnych konkluzji, że każde zamówienie jest podzielne i w przypadku każdego należy szczegółowo wyjaśniać brak podziału, a brak podziału skutkować będzie konsekwencjami dla Zamawiającego, w postaci choćby korekty finansowej. W niektórych sytuacjach powodem niedokonania podziału zamówienia na części będzie po prostu informacja o tym, że zamówienie jest niepodzielne.

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  34. L’UFCM a constaté depuis quelques mois l’accroissement des tromperies à la « roqya ». Les témoignages de personnes victimes de ces pratiques se multiplient et présentent les mêmes caractéristiques : « Une personne vous appelle et vous propose une séance de « roqya » gratuite. Cette personne vous propose de rappeler un numéro prétendu gratuit, souvent un numéro commençant par 0 800… » Mais, dans les faits, cette prestation est loin d’être gratuite, puisque la conversation est facturée à vos frais et à votre insu. Au-delà de l’aspect juridique qui est traité à ce jour par le pôle juridique de l’UFCM[1], ce procédé soulève la problématique de sa conformité au Coran et à la Sunna. En effet, la « roqya » peut se définir comme une thérapie qui permet de soigner les actes de sorcellerie, de mauvais œil et également de se protéger contre ces derniers. Par conséquent, est-il possible de la pratiquer par téléphone et quelles sont les exigences édictées par le Coran et la Sunna ? Nous présenterons ainsi successivement les conditions liées au soignant (I), les exigences relatives à l’environnement où est réalisée la « roqya » (II). Nous aborderons ensuite la question de la gratuité de la prestation ou de sa contrepartie financière et enfin les conditions dans laquelle elle est réalisée (III). I- Les conditions liées au soignant Souvent la « roqya » est perçue comme une pratique dispensée par un tiers. Or, il est essentiel de rappeler et de souligner un fait important : la meilleure des « roqya » est celle que nous dispensons nous-mêmes à travers le « dhikr » et la récitation du Coran. Ainsi, pour se prémunir des maux liés au mauvais œil ou à la sorcellerie, il convient régulièrement de lire le Coran et faire des invocations notamment celles du matin et du coucher, de réciter régulièrement la sourate « La vache », de renouveler son intention, de placer la certitude dans son cœur, d’effectuer ses prières etc., et surtout de demander à Allah la meilleure des protections. Toutefois, dans certaines conditions, il est nécessaire de recourir à un soignant. C’est à ce stade qu’il convient d’être vigilant. Il ne suffit pas de se rendre auprès d’une personne qui se présente avec la qualité de cheikh ou d’imam pour accepter de lui confier cette pratique. Comme pour tout procédé et encore plus lorsque cela relève de considérations religieuses, il est important de bien choisir son soignant car ce dernier est tenu de posséder des qualités bien affirmées. La maîtrise du Coran et des traditions prophétiques en la matière est une condition sine qua none, mais insuffisante. La personne doit également avoir des notions de psychologie afin de déterminer la part de sorcellerie et celle de troubles psychologiques fréquents chez les patients. La personne doit posséder une bonne hygiène de vie, notamment spirituelle puisqu’il n’est pas inutile de rappeler que le succès de la « roqya » dépend de Dieu. Ces critères sont difficilement évaluables, surtout par une personne qui est affectée par un mal-être, quelle que soit sa source. C’est pourquoi les proches doivent accompagner la personne dans la recherche d’un soignant qualifié et reconnu comme tel par des référents religieux de la localité (imam, responsables associatifs, etc.). De manière générale, le soignant doit posséder des qualités déterminées que nous pouvons synthétiser de la manière suivante. Il doit : être en capacité de lire le Coran, croire avec certitude au Coran, être empreint de piété, connaître les pièges et les caractéristiques du diable et des djinns, connaître la méthode prophétique de la « roqya », disposer de connaissances de base en psychologie, avoir la conviction que le succès de sa thérapie dépend de Dieu. A l’exception de la première exigence, il semble difficile de vérifier les autres conditions dans le cadre d’un entretien téléphonique avec une personne que nous n’avons jamais rencontrée, même si elle se présente sous le titre de « cheikh » ou d’un imam. Par conséquent, ces conditions soulignent une première limite quant au recours à la « roqya » par téléphone. Par ailleurs, à l’instar de tout médecin, le soignant doit, avant de prodiguer des conseils ou une médication, procéder à une consultation. Ainsi, un environnement adéquat est indispensable pour la réalisation d’une « roqya ». Il est enfin inconcevable qu’un médecin puisse vous affirmer par téléphone connaître votre maladie et attester pouvoir vous guérir. Vous auriez plus que des doutes sur ce prétendu médecin. II- Un environnement propice et la réalisation d’une consultation préalable à la réalisation d’une « roqya » Il est intéressant de noter que, dans son ouvrage « Comment se protéger des djinns & satan », Wahîd ‘Abdussalâm Bâli évoque l’importance du climat pour réaliser une roqya[2]. Ainsi, il expose les points suivants : « 1. Préparer le climat adéquat en faisant par exemple sortir les images et les statues de la pièce où on va soigner le malade, pour permettre aux anges d’y entrer. 2. Débarrasser le sujet de tout ce qu’il peut porter sur lui comme talismans ou amulettes et les brûler. 3. Éteindre tout ce qui peut émettre le son de la musique et des chants. 4. Vider le lieu de tout ce qui comporte une infraction à la shari‘a à savoir, par exemple, la présence d’un homme qui porte de l’or ou une femme qui ne porte pas le voile légal – al-hijab. 5. Donner au malade et à sa famille une leçon de dogme de façon à ce que leurs cœurs ne soient pas attachés à un autre qu’Allah. 6. Leur faire savoir que la façon de soigner est différente de celle des sorciers et des charlatans et que le Coran recèle guérison et miséricorde, comme l’a informé Allah le Puissant et le Majestueux. 7. Diagnostiquer son cas : pour cela poser des questions au malade pour s’assurer de la présence de tous les symptômes (…) ». Or, dans les témoignages communiqués, l’interlocuteur qui se présente comme soignant ne pose aucune question aux personnes. Il débute ainsi la « roqya » directement par une récitation du Coran. En outre, il est intéressant de souligner que dans l’un des témoignages communiqués à l’UFCM, l’interlocuteur demandait à la personne de remplir successivement des verres de lait, d’huile, d’eau etc. et de les poser par la suite sur la table de la salle à manger. Au point que la personne s’est retrouvée avec une multitude de verres posés sur la table. Le comble est que la personne ignorait ce qu’elle devait en faire lorsqu’elle a pris conscience de la tromperie. Nous constatons par conséquent qu’une « roqya » ne peut être réalisée dans un environnement quelconque. En effet, une procédure de diagnostic est essentielle. Nous pouvons à titre d’exemple faire le parallèle avec un rendez-vous chez le médecin ; ce dernier ne peut vous prescrire une ordonnance sans au préalable vous avoir ausculté et interrogé sur les différents symptômes que vous ressentez physiquement. A défaut, au lieu de guérir vous allez aggraver vos maux. Cette attitude vigilante du médecin traitant doit se retrouver lorsque nous envisageons le recours à une « roqya ». Pour illustrer ce propos, nous citerons l’exemple de l’anthropologue, spécialiste de l’islam européen, Farid El Asri, chercheur associé au Centre Jacques Berque, qui nous rapporte une situation alarmante suite à une « roqya » : « Une jeune femme en Belgique (…) est morte suite à une tentative d’exorcisme. Pendant les séances, les fkihs (imams) utilisent normalement de l’eau « coranisée ». Pour cette jeune femme, prétendument stérile, les exorcistes ont carrément plongé son visage dans l’eau et quand elle tentait d’en sortir pour respirer, les guérisseurs estimaient qu’il s’agissait du jinn qui l’habitait et ils replongeaient son visage dans l’eau. Pendant le procès, la famille de la défunte s’est présentée comme musulmane et a accusé ces pratiques d’être extérieures à l’islam quand les guérisseurs estimaient qu’ils avaient simplement fait ce qu’ils pouvaient. Le fait de recourir trop systématiquement au fkih risque également de faire passer une crise d’épilepsie, par exemple, pour une crise de possession. »[3] Nous allons aborder enfin la dernière problématique, celle relative aux honoraires du soignant. III- Les honoraires du soignant Le Prophète, bénédictions et salut sur lui, « a agréé les Compagnons qui ont été payés pour la roqya ». Il est dès lors autorisé de rémunérer un soignant en contrepartie d’une prestation. Toutefois, cette rémunération doit être raisonnable et surtout clairement définie avant le traitement. En outre, nous ne pouvons que souligner et rappeler que, si la roqya est réalisée dans un cadre sérieux, il convient de procéder à toutes les déclarations administratives. Comme pour tout contrat, vous devez exiger un document écrit et le praticien doit préciser quels sont ses engagements exacts afin d’éviter tout litige postérieur. Malheureusement, tous les témoignages transmis à l’UFCM soulignent que l’interlocuteur insiste à plusieurs reprises sur la gratuité de la prestation. Or, dans les faits, cette dernière est payante puisque le coût de la communication est surtaxé. Ainsi, l’une des victimes qui nous a contacté, s’est retrouvée avec une facture téléphonique (hors forfait) de 1800 euros. Par conséquent, nous constatons que ces « roqyas » gratuites sont fondées sur la technique dite du « call-back » qui consiste à amener une personne à rappeler un numéro surtaxé, information qui lui est bien évidemment dissimulée. Une « roqya » peut être payante à condition de respecter un cadre prédéterminé, fondé sur l’information et la transparence des honoraires. 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