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Predlog Uredbe Sveta o spremembi Uredbe (ES, Euratom) št. 1605/2002 o finančni uredbi, ki se uporablja za splošni proračun Evropskih skupnosti
Proposal for a Council regulatiion amending Regulation (EC, Euratom) No 1605/2002 on the Financial Regulation applicable to the general budget of the European Communities
Namestniki, navzoči pri končem glasovanju
Substitute(s) present for the final vote
Pripombe ( na voljo samo v enem jeziku)
Comments (available in one language only)
MNENJE Odbora za proračunski nadzor (*)
OPINION OF THE COMMITTEE ON BUDGETARY CONTROL
Nobeno drugo zakonodajno besedilo nima večjega praktičnega vpliva na osebje Komisije in drugih institucij kot Finančna uredba.
There is hardly any other item of legislation which has such a practical impact on staff at the Commission and the other institutions as the Financial Regulation.
Približno 40 % zaposlenih Komisije ima skoraj vsak dan opraviti z določbami in prepisi te uredbe.
Some 40% of the Commission's employees have dealings with its rules and instructions, most of them on a daily basis.
Zaradi nejasnosti in nedoslednosti je besedilo nepregledno; številna sklicevanja otežkočajo razumevanje in hitro iskanje odgovorov.
Yet the Regulation lacks clarity and structure, making it untransparent; the numerous cross-references impede understanding and render it difficult to find the answers to questions quickly.
Služba za pomoč GD za proračun skoraj tri leta po sprejetju finančne uredbe še vedno prejme skoraj vsak delovni dan povprečno pet vprašanj uporabnikov, ki iščejo odgovor na svoje težave v Finančni uredbi in njenih pravilih za izvajanje.
Nearly three years after the Financial Regulation was adopted, the helpdesk of DG Budget is still receiving an average of five queries from users every working day, seeking answers to their problems with the Financial Regulation and its implementing provisions.
Napisani so bili obsežni priročniki: vsak generalni direktorat je na podlagi uredbe pripravil svoje predpise in postopke.
Sizeable manuals have been compiled: each DG has drawn up its own rules and procedures on the basis of the Regulation.
Poleg tega je GD za proračun sprejel svoja notranja pravila.
In addition, DG Budget has adopted its own internal rules.
Nastalo je zapleteno, protislovno in nejasno pravo o izvrševanju proračuna, ki postane delno razumljivo le po temeljitem preučevanju.
A complex, contradictory and confusing body of law on the implementation of the budget has come into being, which, even after lengthy training, may be only partly comprehended.
Posledice zapletenih postopkovnih določb so birokratizacija in dolgotrajnost postopkov, poskusi izmikanja odgovornosti z uporabo čim večje hirearhije in čim več postopkovnih faz.
The consequences of the complex procedural provisions are bureaucratisation of processes, protracted procedures and attempts to evade responsibility by involving as many hierarchies and procedural stages as possible.
"Uporabniki" – vlagatelji za nepovratna sredstva in ponudniki pogodb, so vedno bolj razočarani nad Evropo, ki ne le onemogoča državljanom, organizacijam, industriji in raziskovalnim centrom, da bi dobili sredstva, ampak zaradi zapletenosti in visokih stroškov postopkov za predložitev vloge onemogoča prejem znatnih vsot, namenjenih za izplačilo v Evropi.
'Clients' - applicants for grants and bidders for contracts - are increasingly frustrated at a Europe which not only makes it difficult for citizens, organisations, industry and research centres to obtain money but also, by means of complex and costly application procedures, renders unobtainable substantial sums intended for disbursement in Europe.
Ostajajo nerešljiva, temeljna protislovja, na primer, konkurenčna zakonodaja.
Insoluble, fundamental contradictions remain: for example, competing legislation.
Področje uporabe Finančne uredbe in njeno splošno veljavnost omejuje širša zakonodaja, na primer temeljni zakonodajni akti.
The scope of the Financial Regulation and its general validity are restricted by legislation which goes further, for example the basic legal acts.
Slednji lahko pridejo kadarkoli v nasprotje s ključnimi določbami Finančne uredbe.
These may at any time contradict even key provisions of the Financial Regulation.
Zato je orožje, ki je bilo mišljeno kot ostro, v resnici skrhano.
Thus a weapon which was thought to be keen-bladed is in reality blunted.
Komisija je predstavila predlog za pregled, ki je deloma gotovo korak v pravi smeri.
The Commission has submitted a proposal for a revision which in part certainly represents a step in the right direction.
Oblikovala je predloge za obravnavo nekaterih neodložljivih upravnih težav.
It has made proposals for dealing with a number of pressing administrative problems.
Eden od njenih odgovorov je poseganje v pravice Parlamenta.
One of its answers is to encroach upon Parliament's prerogatives.
Življenje bo vlagateljem za sredstva EU olajšano le, če bo uprava obenem imela koristi od sprememb.
Life will be made easier for applicants for EU funding only if at the same time the administration also benefits from the changes.
Komisija ni dala večjega pomena dostopu, prijaznemu za uporabnika, na trge EU in do subvencij EU, krepitvi skupnih pristojnosti za reševanje težav, podatkovnim bazam in uskladitvi postopkov, ki jih vsak GD različno uporablja, da bi tako zmanjšali obseg dela in stroške ter poenostavili postopke za Komisijo ter tudi za uporabnike.
The Commission has not attached much importance to more user-friendly access to EU markets and subsidies, building up a joint capacity for problem-solving, databases and harmonisation of procedures, which are applied differently from DG to DG, in order to reduce work and costs and simplify procedures, both for the Commission and for users.
Treba je še veliko storiti za rešitev upravnih težav Komisije in drugih institucij.
Much also remains to be done to tackle the administrative problems of the Commission and the other institutions.
Zato Računsko sodišče v svojem mnenju št. 10/2005 kritizira prevelik obseg pregleda (odstavek 50) in hkrati očita, da pregled "ne zagotavlja rešitve nekaterih potreb pri upravljanju" ter da predlagane spremembe niso dovolj korenite (odstavek 53).
In its Opinion no 10/2005, the Court of Auditors therefore criticises the excessive scale of the revision (Paragraph 50) while at the same objecting that the revision does not provide 'the solution to certain management needs' and that it is not 'radical' enough (Paragraph 53).
Poročevalca Evropskega parlamenta vlagata 116 predlogov sprememb v zvezi s 63 členi.
The rapporteurs of the European Parliament are tabling 116 amendments relating to 63 articles.
Prednostne naloge Parlamenta so različne od prednostnih nalog Komisije: ohranitev nadzornih pristojnosti in pravic do obveščanja Parlamenta ter ukrepi za zmanjšanje težav, ki jih srečuje vsakdo, ki želi delati z EU.
Parliament's priorities here are not the same as the Commission's: Parliament highlights preserving Parliament's powers of control and rights to information and measures to reduce the difficulties facing anybody wishing to work with the EU.
Poseben poudarek je na delih V in VI Finančne uredbe, trgih in nepovratnih sredstvih, tj. tistih delih, s katerimi javnost pride v stik prek organizacij, raziskovalnih ustanov in podjetij.
There is a particular focus on Parts V and VI of the Financial Regulation, markets and grants, i.e. those parts with which members of the public come into contact via organisations, research establishments and enterprises.
Po mnenju poročevalcev sta olajšanje postopkov in sorazmernost med vloženimi prizadevanji in obsegom pogodbe ali nepovratnih sredstev merili za ocenitev delovanja uprave.
In the view of the rapporteurs, easing of procedures and the proportionality of the effort involved to the size of a contract or grant are the criteria for assessing administrative action.
28 od 95 predlogov sprememb Komisije, ki zadevajo 93 členov, je bilo spremenjenih.
Of the Commission's 95 amendments concerning 93 articles, 28 are modified.
28 predlogov sprememb Komisije je bilo v celoti zavrnjenih.
In another 28 cases, the Commission's proposed amendments are rejected entirely.
Glede 34 členov sta se Komisija in Parlament strinjala, da je reforma potrebna.
In 34 articles both the Commission and Parliament agree that reform is needed.
Predlogi sprememb zadeva 63 členov.
Parliament's amendments concern 63 articles.
Skupaj so Komisija in poročevalca predložili 185 predlogov sprememb, ki zadevajo 122 od 187 členov Finančne uredbe.
Altogether, the Commission and the rapporteurs are proposing 185 amendments to 122 of the 187 articles in the Financial Regulation.
Poročevalca se zavedata, da to ne bo olajšalo razumevanja in uporabe Finančne uredbe.
The rapporteurs realise that this will not make the Financial Regulation any simpler to understand and apply.
Nova različica, pripravljena z namenom poenostavitve, boljše razumljivosti in upravljanja proračuna, usmerjenega v rezultate, bi bila ustrezen odgovor ter najboljše za Evropo in njeno upravo.
A new version drafted with a view to simplification, better comprehensibility and output budgeting would be the appropriate answer and the best for Europe and its administration.
Glavna razmišljanja, na katerih temeljijo najini predlogi sprememb, so naslednja:
The main considerations underlying our amendments are as follows:
Ohranitev pristojnosti Parlamenta
Preserving Parliament's prerogatives
· Predlogi sprememb, ki zadevajo prerazporeditev sredstev (člen 2, člen 19, člen 22, člen 23, člen 26, člen 153 in člen 160a) ter pravice do obveščenosti (člen 28, člen 29, člen 46(1)(1)(f), člen 33, člen 83 in člen 110) so zavrnjeni.
· The amendments concerning transfers of appropriations (Art. 2, 19, 22, 23, 26, 153 and 160a) and rights to information (Art. 28, 29, 46(1)(1)(f), 33, 83 and 110) are rejected.
· V členu 183 je za sprejetje pravil za izvajanje prvič pogoj soglasje proračunskega organa.
· In Art. 183 the adoption of implementing provisions is for the first time made conditional on the assent of the budgetary authority .
Evropa – učinkovitejše delovanje z uporabo preprostejših postopkov
Europe - acting more efficiently, using simpler procedures
· Sorazmernost upravnega delovanja: zahtevani trud in delo, ki ga je treba vložiti v preverjanje, morata biti sorazmerna z zneski in tveganji (člen 2(1)a; člen 27(1) in člen 27(2)(4)).
· Proportionality of administrative action: the required effort and the work to be put into checking should be proportionate to the amounts and risks involved (Art. 2(1)a; Art. 27(1) and 27(2)(4)).
· Uprava mora pregledati svoje delovanje v zvezi z zadevnimi stroški in tveganji (člen 89(1), člen 93a, členi 117 do 119).
· The administration should review its actions in relation to the costs and risks involved (Art. 89(1), 93a, 117 to 119).
· Pri postopkih javnih naročil je treba čim bolj zmanjšati porabo časa in stroške za dokumentacijo (člen 93, člen 89(3)).
· In procurement procedures, the time expended on documentation, and its cost, should be minimised (Art. 93a, Art. 89(3)).
· Postopki javnih naročil morajo biti načeloma medinstitucionalni, da bi lahko tudi druge institucije izkoristile izkušnje in ekonomijo obsega večjih enot (člen 89(3)).
· So that the other institutions can also benefit from the experience and economies of scale of large units, procurement procedures should in principle be interinstitutional (Art. 89(3)).
· Centralni organ za standardizacijo (ki bi obravnaval posebno "vrsto" nepovratnih sredstev, npr. raziskovanje) z enotnimi obrazci, predpisi in, če je mogoče, postopki za zagotavljanje informacij uporabnikom in izvajanje primerjalne analize bi moral izboljšati dostop do nepovratnih sredstev (člen 109 a (novo) in pospešiti postopke za predložitev vloge.
· A central standardisation agency (dealing with a particular 'family' of grants - e.g. research) with uniform forms, provisions and, wherever possible, procedures to provide information to applicants and carry out benchmarking should help to improve access to grants (Art. 109 a (new) and to streamline application procedures.
· Podatkovna baza za obveščanje udeležencev v postopkih javnih naročil (člen 109 a (novo)) lajša postopke za predložitev vloge in odpravlja doslej običajno zahtevo za vlagatelje, da predložijo več izvodov istih dokumentov in zahtevo za Komisijo, da jih večkrat preuči.
· A database for the notification of participants in procurement procedures (Art. 109 a (new)) is intended to facilitate application procedures and avoid the hitherto customary requirement for applicants to submit multiple copies of the same documents and for the Commission to consider them more than once.
· V postopkih javnih naročil mala in srednje velika podjetja ne smejo biti, če je mogoče, predhodno izključena zaradi svoje velikosti (člen 89(4)).
· In procurement procedures, small and medium-sized enterprises should, if possible, not be excluded in advance on account of their size (Art. 89(4)).
· Dolgoročne obveznosti v okvirnih pogodbah ne smejo ovirati konkurence (člen 91 a (novo)).
· Competition should not be impeded by long-term commitments in framework contracts (Art. 91 a (new)).
· S postopkom v dveh fazah je treba predhodno omogočiti, da se čim bolj zgodaj izključijo vloge, ki nimajo možnosti, in le potem zahtevati dokumentacijo, da se tako znižajo stroški za neuspešne vloge (člen 115(2)a)).
· A two-stage procedure should make it possible in advance to screen out at the earliest possible stage applications which are doomed to failure in advance, and only to request further documentation after that, in order to keep the costs of unsuccessful applications down (Art. 115(2)a)).
· Revizijski organ potrdi zakonitost oddaje javnih naročil s hitrim in sorazmerno neformalnim postopkom (člen 100a, člen 100b) v skladu z obveznostmi, ki veljajo tudi za države članice.
· A review body should ensure that awards are made lawfully in a speedy and relatively informal procedure (Art. 100a, 100b), in accordance with the obligations which also apply to the Member States.
Evropa – zanesljivejše delovanje
Europe - acting more reliably
· Stroški predložitve vloge za nepovratna sredstva morajo biti sorazmerni z zneskom (člen 115(4)).
· The costs of applying for grants must be proportionate to the amount to be awarded (Art. 115(4)).
· Odločbe Komisije so lahko namesto obsežnih pogodb podlaga za nepovratna sredstva (člen 108).
· Commission decisions rather than voluminous contracts may be the basis for grants (Art. 108).
To bo skrajšalo in razbremenilo postopke v primeru majhnega zneska nepovratnih sredstev.
This will make procedures less protracted and burdensome in the case of small grants.
· Odredbodajalci morajo zagotoviti pomoč vlagateljem v zvezi s postopkom, zlasti neizkušenim (člen 114(5)).
· Authorising officers should assist applicants for grants with the procedure, particularly if they are inexperienced (Art. 114(5)).
· Kandidati morajo biti sposobni oceniti možnost uspešnosti svoje vloge in imeti pravno varnost, zato se uvede obveznost navedbe vseh predpisov, ki veljajo za nepovratna sredstva (člen 110(1)(2)).
· Applicants should be able to assess the prospects of success of their application from the outset, but should then also enjoy legal certainty, which is the purpose of compulsory indication of all rules applicable to a grant (Art. 110(1)(2)).
· Za postopek dodeljevanja nepovratnih sredstev je treba opredeliti upravičene stroške (člen 113a (1) a), zlasti je treba upoštevati stroške jamstev in revizij (člen 117(3)).
· Eligible costs should be defined for the grants procedure (Art. 113a (1) a); in particular, costs of sureties and audits should be included (Art. 117(3)).
· Če se spremenijo pogoji za projekt, ki bo subvencioniran, to ne sme samodejno povzročiti zmanjšanja finančnega prispevka EU, kar ima lahko nezaželen učinek (npr. konec projekta) (člen 119(2)).
· If the preconditions for a project which is to be subsidised change, this should not automatically lead to a cut in the EU's financial contribution , which can have undesirable effects (e.g. forcing the closure of a project) (Art. 119(2)).
· Znižanja morajo biti sorazmerna z očitano napako (člen 119) .
· Reductions must be proportionate to the error objected to (Art. 119).
Namen je doseči večjo preglednost EU za upravičenca do nepovratnih sredstev in tako zagotoviti večjo pravno varnost, tudi v raziskovalnem sektorju (člen 160b).
The aim is to make the EU more predictable for beneficiaries of grants, thus increasing legal certainty, including in the field of research (Art. 160b).
Evropa – hitrejše in stroškovno učinkovitejše delovanje
Europe - acting more quickly and cost-effectively
· Postopki oddaje javnih naročil morajo postati učinkovitejši.
· Award procedures should become more efficient.
Zlasti je treba zmanjšati njihovo trajanje ter stroške za ponudnike in vlagatelje.
In particular, their duration should be reduced and the costs to bidders and applicants should be cut.
V ta namen morajo zahteve po dokazilih biti skladne z načelom sorazmernosti.
For this purpose, requirements to produce evidence should accord with the principle of proportionality.
· Letni programi za nepovratna sredstva se objavijo čim bolj zgodaj (tj. do 1. marca).
· Annual programmes for grants should be published as early as possible (i.e. by 1 March).
Javni razpis se lahko objavi pred začetkom leta, da se preprečijo vrhunci dela med letom (člen 110(1)(1)), pod pogojem, da se navede dejstvo, da proračunski postopek še ni bil zaključen.
Invitations to tender may also be issued even before the beginning of the year , in order to avoid peaks in work during the year (Art. 110(1)(1)), provided that reference is made to the fact that the budget procedure has not yet been completed.
Evropa – pregledno in skladno delovanje
Europe - acting in a transparent and consistent manner
· Zaposleni v Skupnosti morajo obvestiti svoje nadrejene, da sodelujejo v razpisnem postopku ali v postopku dodeljevanja nepovratnih sredstev, da se poveča ugled Unije in njeno preglednost (člen 94).
· Community staff must inform their superior if they participate in a tender procedure, including a grant application procedure, in order to improve the image of the Union and transparency (Art. 94).
· Ponudniki, ki so storili kaznivo dejanje, morajo biti pet ali deset let izključeni iz postopkov oddaje javnih naročil (člen 93).
· Bidders who have committed criminal offences in the past should be debarred from awards for five or ten years (Art. 93).
S členom 66(1) je uvedeno načelo odgovornosti odredbodajalca.
Art. 66(1) applies the principle of liability of authorising officers .
Namerna škoda ima za posledico obveznost polnega nadomestila škode in je predmet strogih zahtev glede roka zastaranja.
Deliberate damage should give rise to an obligation to compensate the damage in full, and should be subject to strict requirements as regards the limitation period (Art. 73b).
V drugih primerih je odgovornost omejena na 12 mesečnih plač.
Otherwise, liability should be limited to 12 months' salary.
Odbor za proračunski nadzor poziva Odbor za poračun kot pristojni odbor, da sprejme zakonodajni predlog, ki ga je predložila Komisija, z upoštevanjem naslednjih predlogov sprememb:
The Committee on Budgetary Control calls on the Committee on Budgets, as the committee responsible, to accept the legislative proposal as submitted by the Commission with the following amendments:
Odbor za proračunski nadzor poziva Odbor za proračun kot pristojni odbor, da v svoje poročilo vključi naslednje predloge sprememb:
The Committee on Budgetary Control calls on the Committee on Budgets, as the committee responsible, to incorporate the following amendments in its report:
Poleg tega vzpostavlja proračunska načela, ki izhajajo iz člena 268 in naslednjih Pogodbe ES in ki jih je treba spoštovati v vseh zakonodajnih aktih in od katerih je treba kar se da malo odstopati.
Moreover, it establishes budgetary principles , derived from Article 268 et seq. of the EC Treaty, which should be respected by all legislative acts and from which derogations should be kept to a strict minimum.
Proračunska načela so opredeljena predvsem v členu 268 in naslednjih Pogodbe ES.
Budgetary principles are mainly derived from Article 268 et seq. of the EC Treaty.
(2) Praktične izkušnje so pokazale, da so potrebne določene spremembe za lažje izvrševanje proračuna in uresničevanje osnovnih ciljev politik ter za prilagoditev nekaterih zahtev glede postopka in dokazil, zato da bodo bolj sorazmerne s povezanimi tveganji in stroški.
(2) Certain amendments are justified in light of practical experience in order to facilitate budget implementation and the realisation of the underlying policy objectives and to adjust some procedural and documentary requirements so as to make them more proportionate to the risks and cost involved .
Praktične izkušnje so pokazale, da so potrebne določene spremembe za lažje izvrševanje proračuna in uresničevanje osnovnih ciljev politik; priporočljiva je tudi izrecna vključitev načela o sorazmernem upravljanju iz člena 5 Pogodbe ES, zato da se ohrani sorazmerje med povezanimi tveganji in stroški.
(2) Certain amendments are justified in light of practical experience in order to facilitate budget implementation and the realisation of the underlying policy objectives and to enshrine expressly the principle of proportionality of administrative action set forth in Article 5 of the EC Treaty, so as to make it clear that it is proportionate to the risks and cost involved .
(3) Vse spremembe morajo prispevati k doseganju ciljev reform Komisije, pripomoči k izboljšanju ali zagotavljanju dobrega finančnega poslovodenja ter okrepiti zaščito finančnih interesov Skupnosti pred goljufijo in nezakonitim ravnanjem, s čimer bodo pripomogle k oblikovanju razumnega zagotovila zakonitosti in pravilnosti finančnih poslov.
(3) All amendments must contribute to achieving the objectives of the Commission's reforms, should help improve or ensure sound financial management, and should enhance the protection of the Communities’ financial interests against fraud and illegal activities, thus contributing to obtaining a reasonable assurance of the legality and regularity of financial operations.
(3) Vse spremembe morajo prispevati k doseganju ciljev reform Komisije, pripomoči k izboljšanju ali zagotavljanju dobrega finančnega poslovodenja ter k učinkoviti zaščiti finančnih interesov Skupnosti pred goljufijo in nezakonitim ravnanjem, s čimer bodo pripomogle k oblikovanju razumnega zagotovila zakonitosti in pravilnosti finančnih poslov.
(3) All amendments must contribute to achieving the objectives of the Commission's reforms, should help improve or ensure sound financial management, and should more effectively protect the Communities’ financial interests against fraud and illegal activities, thus contributing to obtaining a reasonable assurance of the legality and regularity of financial operations.
(5a) Na podlagi prvega odstavka protokola k Pogodbi ES o uporabi načel subsidiarnosti in sorazmernosti, ki je bil priložen Amsterdamski pogodbi z dne 2. oktobra 1997, so vse institucije pri izvajanju svojih pristojnosti dolžne upoštevati načelo sorazmernosti, v skladu s katerim ukrepi Skupnosti ne smejo prekoračiti okvirov, potrebnih za doseganje ciljev Pogodbe.
(5a) Pursuant to point 1 of the Protocol on the application of the principles of subsidiarity and proportionality, annexed to the EC Treaty and appended to the Treaty of Amsterdam of 2 October 1997, each institution, in exercising the powers conferred on it, is required to comply with the principle of proportionality, according to which any action by the Community must not go beyond what is necessary to achieve the objectives of the Treaty.
V izogib nepotrebnim in okornim postopkom bi morala biti odobritev obvezna samo v primerih, ki vključujejo znatne stroške.
To avoid unnecessary and cumbersome procedures, authorisations should be made compulsory only in the case of significant charges .
V izogib nepotrebnim in okornim postopkom bi morala biti odobritev obvezna v primerih, ki vključujejo posredne stroške.
To avoid unnecessary and cumbersome procedures, authorisations should be made compulsory where there are follow-up costs .