↑ Връщане към РЕСУРСИ

Чести трудности и грешки при изработка и изпълнение на проекти

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I.ПОДГОТОВКА НА ПРОЕКТНИ ПРЕДЛОЖЕНИЯ И КАНДИДАТСТВАНЕ

II. НАЙ-ЧЕСТО СРЕЩАНИ ТРУДНОСТИ ПРИ ИЗПЪЛНЕНИЕТО НА ПРОЕКТИ

III. ОПТИМИЗИРАНЕ НА ПРОЦЕДУРИТЕ, СВЪРЗАНИ С ПЛАЩАНИЯ ПО ДОГОВОРИ ЗА БЕЗВЪЗМЕЗДНА ФИНАНСОВА ПОМОЩ

IV. НАЙ-ЧЕСТО ДОПУСКАНИ ПРОПУСКИ ПРИ ИЗГОТВЯНЕТО НА ДОКУМЕНТАЦИЯТА ЗА ВЪЗЛАГАНЕ НА ОБЩЕСТВЕНИ ПОРЪЧКИ

V . ОТКРИВАНЕ, ДОКЛАДВАНЕ И ПРЕДОТВРАТЯВАНЕ НА НЕРЕДНОСТИ

 


I. ПОДГОТОВКА НА ПРОЕКТНИ ПРЕДЛОЖЕНИЯ И КАНДИДАТСТВАНЕ

1. Комплектоване на проектното предложение и представяне на изискуеми документи

При комплектоването на проектните предложения и представяне на изискуемите документи са установени следните често срещани пропуски от страна на кандидатите:

–  Използване на други различни от образците документи публикувани към схемата /пример: попълване на образец на бюджет, приложим за друга покана, попълване и прилагане на образци приложими по схеми публикувани по други оперативни програми и Програма ФАР/;

–  Непопълване на части от Формуляра за кандидатстване /пример: съгласно Насоките за кандидатстване всички раздели и подраздели на Формуляра за кандидатстване следва да се попълнят, много често кандидатите не попълват определени раздели и подраздели – опит на кандидата, целеви групи и други/;

–  Представяне на некоректни данни във Формуляра за кандидатстване /пример: деклариране на грешен БУЛСТАТ номер, вписване на несъществуващи лица за контакт/;

–  Неокомплектоване на проектното предложение съгласно изискванията /пример: неприлагане на електронен носител, техническа документация, изискуем брой оригинали и копия на документи/;

–  Липсата на формули в бюджет и КСС водещи до аритметични грешки;

–  Наличие на различаваща се и разминаваща се информация в приложенията към депозираните проектни предложения;

–  Представяне на непълна документация, която не отговаря на изискванията на Насоките за кандидатстване по съответната схема и контролния лист за оценка на административното съответствие, най-често в частта „Техническа документация” и „Подкрепящи документи” (например липсват Разрешения за строеж, Доклади за оценка на съответствието на проектите и др.);

–  Представяне на технически/работни проекти съгласно ЗУТ, които не отговарят на Наредба №4/21.05.2001г. за обхвата и съдържанието на инвестиционните проекти и Наредба № 1/12.01.2009 г. за условията и реда за устройството и безопасността на площадките за игра;

–  Вместо работен/технически проект, кандидатите представят идеен проект или дори скици на обектите на интервенция;

–  Не се спазва крайният срок за подаване на документация, което автоматично води до отпадане на проектното предложение от процеса на оценка. В тази връзка УО на ОПРР възприе практиката редовно да напомня на потенциалните кандидати за наближаване на крайния срок за подаване на проектни предложения, чрез публикуване на новина на интернет-страницата

2. Определяне на дейностите, целите и индикаторите на проектното предложение, както и техническа и финансова обосновка.

При определяне дейностите по проектното предложение са установени следните често срещани трудности:

–  Проектното предложение не отговаря на изискванията за допустимост на дейностите съгласно Насоките за кандидатстване и официалните Въпроси и Отговори по настоящата схема – много често заради недопустими дейности проектното предложение отпада на етапа на оценка на допустимостта;

–  Графикът за възлагане на обществените поръчки не е правилно определен;

Пример: При определяне на графика за провеждане на обществени поръчки се залагат прекалено кратки срокове, които не могат да бъдат спазени. Често срещана грешка е да се разделят обществени поръчки, които въпреки че имат един и същи предмет се обявяват отделно, защото са в различни редове от бюджета на проектното предложение, което е в противоречие с принципа, заложен в чл. 8, ал. 2 от ЗОП.

–  Графикът на дейностите не отчита ограничителните дадености, които имат пряко отношение към изпълнението на дейностите;

Пример: Не е предвидено осъществяване на строителен надзор, който се изисква съгласно ЗУТ.

–  Непълна обосновка на необходимостта от проекта, поради ниско качество на прединвестиционното проучване;

Пример: Вписване в бюджета на необосновани във формуляра за кандидатстване дейности и разходи

–  Продължителността на някои от заложените в проекта дейности е нереалистична;

–  При определяне целите и индикаторите на проектното предложение са установени следните често срещани трудности, пред които са изправени кандидатите:

А. Смесване на понятието цел на проекта с дейност по проекта;
B. Вписване на нереални индикатори за икономия на енергия вследствие изпълнение на мерки за енергийна ефективност
–  При разработване на техническата и финансовата обосновка са установени следните често срещани трудности, пред които са изправени кандидатите:

A. Несъответствия между дейностите описани във формулярите за кандидатстване и бюджета на проектите;
B. Несъответствия между инвестиционните проекти и приложените КСС;
C. Несъответствия между отделните приложения на пакета документи за кандидатстване- формуляр, бюджет, КСС.

След извършване на анализ на горепосочените често срещани затруднения бяха идентифицирани следните причини, които водят до допускане на грешки:

A. Непознаване на Насоките за кандидатстване;
B. Подценяване на Указанията за попълване на Формуляра за кандидатстване;
C. Подценяване и непознаване на публикуваните отговори на въпроси по конкретната схемата

3. Улесняване на процедурите за кандидатстване и въвеждане на „добри практики”

–  Всички проекти на Насоки за кандидатстване за процедури за подбор на проекти по ОП се публикуват на интернет страницата на Управляващия орган на ОП с оглед предварителни обсъждания и получаване на коментари от страна на най-широк кръг заинтересованите лица. По този начин още в начална фаза се създава възможност да бъдат отстранени неточности и да се дефинират ясно допустимите дейности и разходи, както и да се конкретизират изискуемите от кандидатите съпътстващи документи;

–  Намаляване на броя на копията на техническата документация, която кандидатите представят на етапа на кандидатстване – вместо 3, сега кандидатите представят 1 копие;

–  На 03.09.2009 г. бе утвърдена Методика за проверка и корекция на цените на строително-монтажни работи в количествено-стойностните сметки на всички проектни предложения за инфраструктурни проекти по ОПРР 2007-2013 г. Изменени и въведени в изпълнение са Вътрешните детайлни правила за работа на оценителни комисии за оценяване на проекти по ОП, като в състава на оценителните комисии задължително се включват външни помощник-оценители с необходимата квалификация и опит за извършване на проверка и корекция на цените на СМР;

– Организиране на приемен ден всеки вторник за посещения на бенефициенти във връзка с изпълнението на договорите за предоставяне на безвъзмездна финансова помощ по Оперативните програми. На срещите се разглеждат казуси на бенефициенти, които по една или друга причина са затруднени при изпълнението на договорите с УО на ОП, както и се поставят проблеми, свързани с провеждането на процедурите за възлагане на обществени поръчки. Целта на приемния ден е да се търсят бързи и адекватни решения на всеки отделен казус, в случаите, когато това е възможно и допустимо;

–  Със заповед №РД-02-14-2028/13.11.2009г. на Ръководителя на УО на ОП са ограничени случаите, при които се извършва сключване на анекс към подписан договор за предоставяне на безвъзмездна финансова помощ по:

A. Промяна на срока за изпълнение на договора за безвъзмездна финансова помощ;
B. Промяна в правния статут на бенефициент/ партньор;
C. Промяна в договорените дейности по проекта, която води до въвеждане на
нови дейности или отпадане на дейности и въвеждане на нови;
D. Преразпределение на средствата в бюджета на проекта, водещо до увеличаване или намаляване с повече от 15 % па договорените в бюджета общи стойности на бюджетни раздели по безвъзмездната финансова помощ (както на отдаващия, така и на приемащия раздел);
E. Преразпределение на средствата в рамките на един раздел от бюджета на проекта, свързано с появата на нови бюджетни пера/дейности, които не са договорени с първоначалния бюджет, но без които дейностите но договора не могат да се изпълнят.

Във всички останали случаи Управляващият орган провежда кореспонденция с бенефициента, събира необходимите доказателства и одобрява или отхвърля писмено исканата промяна. По този начин се избягва една порочна практика, насърчаваща недоброто времево планиране на изпълнението на договорите и същевременно водеща до изготвянето на многобройни и нецелесъобразни допълнителни споразумения, които забавяха и затрудняваха работата както на Управляващия орган на ОП, така и на самите бенефициентите, изпълнители на договори по ОП.
 
Отиди в началото.
 

II. НАЙ-ЧЕСТО СРЕЩАНИ ТРУДНОСТИ ПРИ ИЗПЪЛНЕНИЕТО НА ПРОЕКТИ

–  Кандидатстване с идейни проекти и провеждане на процедури по ЗОП и НВМОП с количествено-стойностни сметки и технически спецификации по идейните проекти, което след разработване на технически или работен инвестиционен проект налага големи изменения в количествено-стойностните сметки, водещи до анексиране на договора за безвъзмездна финансова помощ;

–  Неимоверно голям брой аритметични грешки в количествено-стойностните сметки на етап кандидатстване или на етап провеждане на процедурите за избор на изпълнители, което води до необходимост от корекции по време на изпълнението,
както в количествено-стойностните сметки, така и в одобрения бюджет към договора за безвъзмездна финансова помощ;

–  Недобро планиране на продължителността за изпълнение на проекта най-вече в частта за необходимите срокове за провеждане на процедурите за възлагане на обществени поръчки, което води до непрекъснати искания за удължаване сроковете за изпълнение на договора с бенефициента и до значителен брой анекси дори и към един и същи договор за безвъзмездна помощ;

–  Недобро планиране на финансовия ресурс от страна на бенефициентите, което води до липса на достатъчно средства за разплащане с изпълнителите с цел подаване на искане на плащане към Управляващия орган и оттам до голям брой искания за кредит към фонд ФЛАГ.

Предприети мерки:
A. При публикуване на настоящите схеми за предоставяне на безвъзмездна финансова помощ не се допуска кандидатстване с идейни проекти, а само с технически или работни проекти;
B. Издаване на задължителни указания от УО към бенефициентите за отстраняване на явни фактически грешки;
C. Публикуване на Наръчник за изпълнение на проекти за бенефициенти – общини и ЮЛНЦ по ОП на сайта на програмата
 
Отиди в началото.
 

III. ОПТИМИЗИРАНЕ НА ПРОЦЕДУРИТЕ, СВЪРЗАНИ С ПЛАЩАНИЯ ПО ДОГОВОРИ ЗА БЕЗВЪЗМЕЗДНА ФИНАНСОВА ПОМОЩ


–  С цел отстраняване на констатираните пропуски и слабости в работата на Управляващия орган и оптимизиране процеса на подготовка на искането за плащане от бенефициентите, Управляващият орган на ОП предприе следните мерки:

–  Редуциране броя на копията на документите, които се изискваха при всяко искане за плащане. Голяма част от документацията вече ще се представя при авансово и междинно плащане само на електронен носител (компакт диск) в “pdf.” формат придружен с Декларация-Опис. Това се отнася до документи като: договор Бенефициент/Договарящ орган, анекси и изменения на договора, копие от подписани договори на бенефициента в качеството му на възложител за инфраструктурен проект по дейности за услуги/доставки/, копие на разходооправдателните и платежни документи, справка за изплатени възнаграждения по граждански договори и трудови правоотношения и времеви графици, извлечение от счетоводната система – оборотна ведомост, аналитична ведомост и др., копие от дневника за покупки и Справка – декларацията за съответните данъчни периоди по от ЗДДС и т.н.;

–  Въвеждане на декларативен принцип за някои от документите, свързани с искания за плащане (документите се представят на хартиен носител само при първото искане за плащане или в случай на промяна в първоначално декларираните обстоятелства),
както следва:

A. Формуляр за финансова идентификация ;
B. Декларация за съответствие на банковата сметка;
C. Декларация за вида на използваните от страна на бенефициента официални печати;
D. Копие от официалната регистрация, съгласно чл. 104 от ЗДДС;
E. Копие от нотариално заверено пълномощно ( в случай на искания за плащане по даден проект, ако приложените документи са подписани и подпечатани от оторизирано за целта лице, различно от лицето подписало договора с УО).

По отношение на забавянето на авансовите и междинните плащания на бенефициентите Управляващият орган предприе следните мерки:

– Оптимизиране на процедурата по верификация на разходите чрез намаляване на кореспонденцията с бенефициента – след преглед на техническия доклад и финансовия отчет към Искането за плащане УО на ОП изпращат на бенефициента едно обобщено писмо с констатации и искане на допълнителна информация;

–  Съкращаване срока на изготвянето и представянето на доклада по верификация – същият се изготвяше от отдел Мониторинг, два пъти в месеца. Сега ще се изготвя от Регионалните отдели, който могат да представят тези доклади на много по-кратки
срокове, която ще ускори процеса на верификация на разходите, а от там и плащането към бенефициентите;

– Оптимизацията на процедурите на УО, свързани с верификацията на разходите и с процеса на анексиране на договорите на бенефициентите, чрез скъсяване периода на „престой” на едно искане за плащане в УО, така че процедурата по анексиране да не пречи на процеса на верификация на разходите;
– Определяне на 5 дневен срок за реакция на бенефициента при изпълняване на указания на УО. Дадена е възможност на бенефициента писмено да поиска удължаване на този срок при невъзможност да предостави исканата информация.
 
Отиди в началото.
 

IV. НАЙ-ЧЕСТО ДОПУСКАНИ ПРОПУСКИ ПРИ ИЗГОТВЯНЕТО НА ДОКУМЕНТАЦИЯТА ЗА ВЪЗЛАГАНЕ НА ОБЩЕСТВЕНИ ПОРЪЧКИ


– При осъществяване на предварителен контрол върху процедури за обществени поръчки, финансирани по ОПРР експертите от Отдел ЗОРН отчитат, че изпратените за предварителен контрол проекти на документи съдържат грешки и несъответствия с нормативните изисквания в областта на обществените поръчки.

–  Проблемите най-често са свързани с формулиране на неясни, противоречиви и субективни условия, с липса на пропорционалност между поставените изисквания и предмета и обема на обществената поръчка.

– С цел оказване на помощ на бенефициентите на ОПРР за точното и еднакво прилагане на нормативните актове при спазване на принципите на публичност, прозрачност, свободна, честна конкуренция и равнопоставеност на всички участници в областта на обществените поръчки и обсъждане на спорни въпроси, възникнали при практическото прилагане на нормативната уредба по обществени поръчки;

–  С цел избягване на често допусканите грешки, УО на ОПРР ще проведе серия от обучения, включващи следните основни теми:

А. Нормативна уредба / ПМС 55, ЗОП, НВМОП /;
B. Предварителен контрол на тръжната документация, изготвяна от бенефициентите на ОПРР от страна на УО на ОПРР;
C. Условия и ред за провеждане на предварителен контрол по отношение на процедури които се финансират със средства от Европейските фондове /наредба за осъществяване на предварителен контрол на процедури финансирани от ЕФ и Наръчник на УО/;
D. Представяне на най-често допускани нарушения от страна на възложителите
 
Отиди в началото.
 

V. ОТКРИВАНЕ, ДОКЛАДВАНЕ И ПРЕДОТВРАТЯВАНЕ НАНЕРЕДНОСТИ


– С цел запознаване на бенефициентите на ОПРР с основните механизми за защита на финансовите интереси на общността при усвояване на европейски средства по Структурните фондове, както и механизмите и процедурите по откриване, докладване и противодействие на нередности при изпълнение на проекти, съфинансирани от ЕС.

–  С цел предотвратяване и свеждане до минимум на нередностите, УО на ОПРР ще проведе следните обучения:

A. Законова рамка
B. Основни определения / нередност и нарушение/
C. Какво разбираме под „нередности ” и как се откриват
D. Класификация на нередностите
E. Примери за нередности
F. Откриване на нередности /източници на информация участващи органи, процедури на проверка и потвърждение/
G. Докладване на нередности и последствия от това
H. Възможни последствия от нередностите/ последствия за бенефициентите, коригиращи мерки и финансови корекции/
 
Отиди в началото.
 

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