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Sastanak sa naručiocima

Danas smo održali radni sastanak sa službenicima/cama za javne nabavke. Ovaj sastanak je nastavak istraživanja o stavovima naručilaca i ponuđača o rizicima za korupciju u postupcima javnih nabavki. U prvoj fazi istraživanja službenici/ce dostavljali su svoje primjedbe i sugestije putem emaila u odgovorima na upitnik koji je sačinio istraživački tim Instituta alternativa, pa su i prvi rezultati istraživanja predstavljeni na današnjem sastanku.

Službenici/ce smatraju da su, između ostalih, ključni problemi na koje su naišli tokom sprovođenja Zakona:

  • Mogućnost ulaganja žalbe u okviru svake faze tokom postupka te poništenje postupaka od strane Državne komisije zbog neadekvatno pripremljene tenderske dokumentacije;
  • Nestručnost komisije za otvaranje i vrednovanje koja samo formalno izvrši otvaranje i zatvaranje ponuda dok sve poslove obavi službenik/ca za javne nabavke;
  • Službenik/ca za javne nabavke je prinuđen/a, da rukovodstvo ustanove upozorava na Zakon, čak i pisanim putem;
  • Neusaglašenost podzakonske regulative sa Zakonom o javnim nabavkama;
  • Neusklađenost mišljenja Uprave za javne nabavke i Državne komisije za kontrolu postupka javnih nabavki kada je tumačenje određenih zakonskih normi u pitanju;
  • Neinformisanost o svim neposrednim sporazumima koji se zaključe u okviru jednog organa.

Istraživanje se realizuje u okviru projekta “Civilno društvo i građani protiv korupcije u javnim nabavkama” koji Institut alternativa sprovodi uz podršku Ambasade Kraljevine Holandije. Aktivnosti su usmjerene ka jačanju saradnje između državnih i nedržavnih aktera u zajedničkim naporima u utvrđivanju nepravilnosti u oblasti javnih nabavki i formulisanju preporuka za unapređenje.

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Public Policies

This collection of papers is a result of the work of “Public policy school”. Within this Collection, five authors analyze the term and the key elements of the public policy, from five different perspectives. The second part of this collection of papers integrally contains the analysis “Policy making review – Montenegro” prepared by SIGMA during the 2013, for which the Institute alternative has collected information.

The six–month long intensive program for acquisition of knowledge and skills in the field of public policy is being realized since 2012 with the aim to contribute to the quality development of public policy in Montenegro by strengthening the capacity of stakeholders in policy development as well as to raise the level of understanding of the public policy development among key actors, but also to strengthen communication and cooperation among participants from various sectors, institutions and organizations.

Within five modules, the participants of the Public policy school have the opportunity to learn about term, actors, instruments, methods of research and the content of sector policies. So far, the programme of Public Policy School was attended by 80 participants, among which the largest number of persons employed in state administration and a smaller number of employees in local government, trade union organizations, the media, the activists of NGOs as well as the best undergraduate and postgraduate students.

In order to additionally contribute to the study of public policy in Montenegro and to facilitate the preparation for the future attendees, we have decided to collect key lectures in a unique collection of papers. The preparing and publishing of this collection of papers is supported by the Commission for the Allocation of Revenue from Gambling.

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Javne politike

Zbornik koji je pred čitaocima proizašao je iz rada programa ”Škola javnih politika”. U okviru zbornika pet autora iz ugla različitih naučnih disciplina analiziraju pojam i ključne elemente javnih politika. Drugi dio zbornika integralno čini analiza ”Pregled izrade javnih politika – Crna Gora” koju je pripremila SIGMA tokom 2013. godine, a za čije potrebe izrade je Institut prikupljao podatke.

Intenzivni program za sticanje znanja i vještina iz oblasti javnih politika realizuje se od februara 2012. godine sa ciljem da doprinese kvalitetnom razvoju javnih politika u Crnoj Gori kroz osnaživanje kapaciteta zainteresovanih strana za razvoj javnih politika, podizanje stepena razumijevanja razvoja javnih politika među ključnih akterima, kao i osnaživanje komunikacije i saradnje među učesnicima iz različitih sektora, institucija i organizacija.

U okviru pet modula, polaznici Škole javnih politika imaju mogućnost da se upoznaju sa pojmom, akterima, instrumentima, metodama za istraživanje, sadržajem sektorskih javnih politika. Program Škole do sada je pohađalo 80 polaznika, među kojima je najveći broj onih koju su zaposleni u organima državne uprave, i manji broj zaposlenih u lokalnoj samoupravi, sindikalnim organizacijama, medijima, aktivisti nevladinog sektora, kao i najbolji studenti osnovnih i postdiplomskih studija.

Upravo iz razloga dodatnog doprinosa izučavanju javnih politika u Crnoj Gori, kao i olakšanoj pripremi polaznika za pohađanje Škole, odlučili smo se da ključna predavanja grupišemo u okviru jedinstvenog zbornika. Njegovu izradu i izdavanje podržala je Komisija za raspodijelu dijela prihoda od igara na sreću.

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Statement regarding the amendments to the Law on National Security Agency

We cannot be satisfied with the final decisions adopted by the Parliament; in particular with the decision which stipulates that the Director of the Agency approves the inspection of registers and databases of legal entities. As we have pointed out many times, the practice of the European Court of Human Rights, which is required for Montenegro as a signatory of the Convention on Human Rights, stipulates the explicit request – the deeper interference with human rights requires higher level of authorization to execute covert measures. In this case, constitutionally guaranteed right to privacy and the right to protection of personal data would be significantly limited. That is the reason why we have insisted to make a distinction in relation to the databases of state authorities and to introduce a higher level of approval by the Supreme Court for the application of these measures. The databases and registers of the legal entities include medical records of citizens, bank data, the data about vulnerable and marginalized groups, etc. In other words – the data subjected to abuse. Therefore, these data should be additionally protected in such manner that the organ, which is not the part of the National Security Agency, confirms the legitimacy of the application of such measures. We share the same point of view when it comes to the electronically determining of the location of the user of the telecommunication networks, monitoring and surveillance in the open.

All that remains is to wait the Constitutional Court to consider these problematic norms.

However, we have to emphasize that three of our proposal have been adopted and we believe that the implementation of aforementioned proposals is going to enable further reforms of the Agency in long terms.

Namely, it is stipulated that from now on, the internal control of the National Security Agency submits its annual work report to the Security and Defense Committee.

We hope that in this way the Parliament would put an additional pressure on the internal control which exercises its authority, checks legality of officers’ practice, and prosecutes them for all forms of abuse.

Second, the right of each member of the Committee on Security to request information held by the NSA is strengthened, by deletion of the article in the Law on National Security Agency which was granting this right to the Committee as a whole. This meant that only a majority in the committee could get information from the NSA, which was a major disadvantage for the MPs of the opposition. Now, the possibilities which enable to the Committee, and to the members of the Board, are complete and available when it comes to control of the NSA, so we hope that the MPs will use this power in the future, and thus help to build the trust in the Agency.

Finally, the Law stipulates the procedure which enables the destruction of data which are not related to the security and, thus, prevent the excessive (collateral) collection of the data. This will both safeguard the rights of “related parties” and legally bound the NSA to destruct personal and family data, as well as all other data whose obtaining is not the goal of aforementioned measures.

In the next period, state organs which have the authority to supervise the work of NSA, which are as follow: Security and Defense Committee, the Agency for Protection of Personal Data and the Ombudsman, should perform direct controls and examine the cases to ensure that the articles of the Law which are meant to protect the citizens’ rights are adequately implemented.

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Izjava za Agenciju MINA o usvajanju izmjena i dopuna zakona o ANB

Ne možemo biti zadovoljni konačnim rješenjima koje je usvojila Skupština, a naročitom rješenjem da direktor Agencije odobrava uvid u registre i baze podataka pravnih lica. Kao što smo već puno puta isticali, iz prakse Evropskog suda za ljudska prava, koja je obavezna za Crnu Goru kao potpisnicu Konvencije o ljudskim pravima, proizilazi izričit zahtjev da, što je dublje zadiranje u ljudska prava, bude viši stepen auturozacije za izvršenje tajnih mjera. U ovom slučaju, značajno se ograničavaju Ustavom garantovano pravo na privatnost i pravo na zaštitu podataka o ličnosti. Zato smo insistirali da se napravi razlika u odnosu na baze državnih organa i uvede viši nivo odboravanja, od strane Vrhovnog suda, za primjenu ove mjere. U baze i registre pravnih lica spadaju i medicinski kartoni građana, bankovni podaci, podaci ranjivih i marginalizovanih grupa, itd. drugim riječima, podaci podložni zloupotrebama. Stoga ih je trebalo dodatno zaštiti na način što bi tijelo van ANB, potvrđivalo legitimnost primjene takve mjere. Isti stav imamo kada je u pitanju elektronsko utvrđivanje lokacije korisnika telekomunikacionih mreža, praćenje i osmatranje na otvorenom.

Sada preostaje da se čeka da Ustavni sud razmotri problematične norme.

Ipak moramo istaći da su tri naša predloga usvojena, i vjerujemo da će njihova primjena, duguročno, omogućiti dalje reforme ANB.

Naime, propisano je da, od sada, unutrašnja kontrola ANB dostavlja svoj godišnji Izvještaj o radu Odboru za bezbjednost i odbranu. Nadamo se da će na taj način, Skupština vršiti dodatan pritisak na unutrašnju kontrolu da sprovodi svoja ovlašćenja, vrši provjere zakonitosti postupanja službenika, i procesuira ih za sve oblike zloupotreba.

Drugo, ojačano je pravo svakog člana Odbora za bezbjednost da traži podatke u posjedu ANB, time što je izbrisan član Zakona o ANB koji je ovo pravo davao Odboru u cjelini. To je značilo da je samo većina u odboru mogla da dobije podatke od ANB što je u nepovoljan položaj stavljalo poslanike opozicije. Sada su upotpunjene mogućnosti koje, Odboru, i članovima Odbora, stoje na raspolaganju kada je u pitanju nadzor nad ANB, pa se nadamo da će je poslanici više kontrolisati u narednom periodu, i time pomoći građenju povjerenja građana u Agenciju.

Konačno, zakonom je propisana procedura za uništavanje podataka koji nisu bezbjednosnog karaktera i time spriječilo prekomjerno (kolateralno) prikupljanje informacija. Ovim su zaštićena prava “povezanih lica” i zakonski obavezana ANB da uništava lične, porodične, i sve ostale podatke koji nisu bili cilj primjene mjera.

Predstoji da u narednom peridu, organi koji imaju ovalašćena za nadzor nad ANB, a to su pored Odbora za bezbjednost i odbranu, i Agencija za zaštitu ličnih podataka i Ombudsman, provjere direktnim kontrolama i uvidom u predmete, da li se odredbe zakona kojima se štite prava građana, adekvatno i primjenjuju.

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House of the Civil Society at the agenda of Council for NGOs

During the meeting of the Council for the Development of NGOs held today, the second topic on the agenda was “Discussion on the Government’s response on the question of the Council on the Civic house project.”

During one of the previous meetings of the Council (held on November 17th 2014), the President of the Managing Board of the Institute Alternative and the member of the Council, Stevo Muk, has initiated the request for the information about the negotiations (discussions) between the Government (the Ministry of Finance and the Ministry of the Sustainable Development) with the Rockefeller Brothers Foundation (RBF), headquartered in New York, NGO “Fund for Active Citizenship” (FAKT), NGO “Center for Democratic Transition”(CDT) , NGO “Civic Alliance”(GA), and the capital Podgorica on installing a construction building called “Civic House”.

According to information from the media, the intention of the Government is to permanently assign these NGOs specific plot owned by the state of Montenegro, and Podgorica Capital will exempt these three NGOs/foundations from the payment of utilities while RBF would finance construction of the facility, which will be owned by previously mentioned NGOs. The initiative in its entirety can be found here (in Montenegrin only).

In the meantime, the Council has received an answer to its request, which can be found here (in Montenegrin only).

Here we present Stevo’s speech on today’s meeting, in which he pointed out the problematic issues of this case which were even more complicated by the Government’s response. Also, the proposal of the conclusions that the board should adopt is added as well to this presentation.

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“I am unpleasantly surprised with the way that the Government has informed us about this project. The way in which the Government informs us speaks for itself about the relationship of the Government to this Council and representatives of non-governmental organizations. I am not saying this just because of the fact that since the day we made the decision to refer these questions to the government to the day when the Council considers the response more than 60 days have passed. Firstly, I am referring to the content of the response.

The only news that we can learn from the Government’s response is the information that, allegedly last year (since the date was not added), the meeting of representatives of organizations Civic Alliance (GA), Center of Democratic Transition (CDT), and Fund for Active Citizenship (FAKT) has been held with the Prime Minister Milo Đukanović.

Additionally, the Government has introduced us to the fact that after this meeting, the series of other meeting between the representatives of the Government, the capital city and three aforementioned NGOs were held, for which the Government claims to represent “the triangle – research center – investigative journalism-allocation of project funding for NGOs”.

From the response of the Government lead by Milo Đukanović we were not able to find out how much will be the amount of financial contribution provided by the Government and the Capital, nor what exactly is the content of the of the “Civic house” project. In relation to that, we are not convinced by the claim from the Government’s response:

“It is agreed upon that the project, including the construction of the Civic house, will be financed by the Rockefeller Brothers Foundation”

If this Government’s claim is true, then it would not have been needed to hold the meeting with the representatives of the CDT, GA and FACT with the Prime Minister nor that the Government expresses its “willingness to participate in this project”.

The response of the Government does not contain any new information in relation to those already published by the media. For this reason, I have the right to doubt that the government, in this case, is hiding some important information about this project. Unfortunately, the general rule is that where there is no transparency, where there is an excess of discretion, there is the highest risk of corruption. I think it’s a burden that should neither Government nor the colleagues from the NGO sector should carry.

We from NGOs must strive to equal principles no matter who is the subject in specific cases. Managing the state property as well as exempting certain subject from the payment of utilities stipulated by the law are both the matters of public interest and we cannot turn our heads only because it comes to NGOs. In the end, we cannot accept the Government’s idealization of one part of NGOs, while the other NGOs are being satanized by the same authority.

I want to emphasize once again, as I have already said to my colleagues from the so called “triangle”, that my goal is not to deny or obstruct the realization of the project, neither as the member of this Council nor as the President of the Managing Board of the Institute Alternative.

My only intention, which I would like to be adopted as the joint view of this Council, is to allow to all NGOs to realize similar projects, but in accordance to open, clear and precise regulations, without being forced to go to Milo Đukanović to exercise the granted right.

According to that, I suggest that the Council adopt the conclusion as follow:

  • The Council expresses it dissatisfaction with the content of the Government’s response related to the building project “Civic house” in Podgorica. From the response submitted, one could not find out much about the project “Civic house” itself.
  • From the Government’s response, one could not come to the conclusion about which questions would be regulated by the memorandum between the Government, GA, CDT and FAKT. From the Government’s response, one could not find out what will be the amount of financial or any other contribution provided by the Government and the Capital in the installment of this house or about the dynamics of its realization.
  • In addition to that, it is not clear when and where the meeting between Milo Đukanović and representatives of the Civic Alliance, Center for Democratic Transition and Fund for Active Citizenship was held.
  • The Council herewith reminds the Government that the Republic of Montenegro does not have any programme support for the purpose of investigative journalism, research centers nor the organizations which allocate the project funding for other NGOs.
  • The Council reminds the Government that the Republic of Montenegro does not have any open, public, written, transparent and fair procedures for the allocation of the state property to NGOs, nor for the exempting certain subject from the payment of utilities, nor for the cessions of the urban construction sites free of charges to NGOs
  • The Council urges the Government, before it makes any legally binding decisions with financial consequences related to the project of Civic house, to prepare and adopt the policy and procedure for the state support to NGOs related to the provision of the working and office space for NGO, in accordance to which the procedures with the Civic house project would be conducted as well as ensure the possibilities to all NGOs to compete for their rights.
  • Council recalls that the Strategy of development of NGOs in Montenegro stipulates the adoption of laws which would define the policy for providing working space for the use of NGOs.
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