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Os poderes de conformação da relação contratual
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Abstract(s)
A conformação da relação contratual de qualquer contrato constitui matéria de grande relevância, à qual o Direito confere, naturalmente, enquadramento.
O regime da conformação da relação contratual no âmbito da execução de contratos públicos apresenta especificidades inerentes à prossecução do interesse público que lhe é subjacente, incluído neste, pelo menos numa certa dimensão, a salvaguarda da concorrência.
O presente estudo visa contribuir para a correta interpretação e aplicação dos princípios e das normas relevantes para a conformação da relação contratual no âmbito da execução de contratos públicos, no que concerne aos poderes atribuídos ao contraente público, e aos limites a que está vinculado.
Como ponto de partida, aliás indispensável, procuraremos delimitar o conceito de contrato público em cuja execução deve estar presente, na generalidade, a prossecução do interesse público, e, de modo particular, a salvaguarda ou defesa da concorrência.
Seguidamente, e tendo por referência aquele conceito de contrato público, procederemos a uma reflexão geral sobre a caraterização e legitimação dos poderes de conformação da relação contratual, em função dos interesses prosseguidos pelo contraente público, e aos limites inerentes ao exercício daqueles poderes.
Neste contexto, abordaremos a crescente sobreposição entre o Direito europeu e o Direito nacional a propósito da execução de contratos públicos, e em particular a incursão feita pelas Diretivas da União Europeia de 2014 relativas aos contratos públicos.
Concluído o enquadramento do tema do trabalho, cumprirá analisar cada um dos designados poderes de autoridade tradicionalmente à disposição da Administração para a conformação de relações contratuais, a saber, os poderes de direção, de fiscalização, de modificação, de sanção, e de resolução unilateral, não deixando de abordar também formulações específicas desses poderes em função do respetivo objeto contratual. Merecerá ainda referência a figura da cessão da posição contratual do cocontratante por decisão do contraente público, introduzida no Código dos Contratos Públicos no âmbito da revisão de que foi alvo em 2017, bem assim como a relação entre os poderes de conformação da relação contratual e o gestor do contrato, inovação igualmente introduzida no Código no âmbito daquela revisão.
Antes da apresentação das conclusões, far-se-á uma brevíssima referência à proposta de alteração legislativa do Código dos Contratos Públicos conhecida já na fase final da elaboração do presente trabalho, e que integra também matéria relativa à conformação da relação contratual.
As conclusões do trabalho centram-se na relevância do equilíbrio entre os poderes e os limites atribuídos e impostos ao contraente público em matéria de conformação da relação contratual, e na crescente importância que o Direito da União Europeia, julgamos, tenderá a assumir no regime substantivo da execução de contratos públicos.
The conformation of the contractual relationship of any contract is a matter of great importance, to which the law, naturally, provides a framework. The regime that foresees the conformation of a contractual relationship in the context of the execution of public contracts has specific characteristics inherent to the pursuit of the underlying public interest, which includes, at least to a certain extent, the safeguarding of competition. This study aims to contribute to the correct interpretation and application of the principles and rules relevant to the conformation of the contractual relationship in the context of the execution of public contracts, with regard to the powers attributed to the public contractor, and the limits to which it is bound. As a starting point, which is indispensable, we will seek to define the concept of public contracts in which, in its execution, one must consider, in general, the pursuit of the public interest and, in particular, the safeguarding or defence of competition. Subsequently, and with reference to this concept of public contract, we will make a general reflection on the characterisation and legitimisation of the powers to conform the contractual relationship, according to the interests pursued by the public contractor, and to the limits inherent to the exercise of these powers. In this context, we will address the increasing overlap between European and national law in the matter of execution of public contracts, and, in particular, the incursion of the 2014 European Union Directives addressing public contracts. Concluded the framework of the theme of this study, we will then analyse each of the so-called traditional authority powers available to the Administration for the conformation of contractual relations, namely the powers of direction, supervision, modification, sanction and unilateral termination, while also addressing specific formulations of these powers according to their contractual object. Reference will also be made to the assignment of the contractual position of the co-contractor by decision of the public contractor, introduced in the Public Procurement Code as part of the revision it underwent in 2017, as well as to the relationship between the powers to conform the contractual relationship and the contract manager, an innovation also introduced in the Code as part of that revision. Before presenting the conclusions, a very brief reference will be made to the proposal for a legislative amendment to the Public Procurement Code, which is already known at the final stage of the preparation of the present study, and which also includes a matter relating to the conformation of the contractual relationship. The conclusions of the study focus on the importance of the balance between the powers and the limits attributed and imposed on the public contractor in terms of the conformation of the contractual relationship, and on the growing importance that European Union law, we believe, will tend to assume in the substantive regime of the execution of public contracts.
The conformation of the contractual relationship of any contract is a matter of great importance, to which the law, naturally, provides a framework. The regime that foresees the conformation of a contractual relationship in the context of the execution of public contracts has specific characteristics inherent to the pursuit of the underlying public interest, which includes, at least to a certain extent, the safeguarding of competition. This study aims to contribute to the correct interpretation and application of the principles and rules relevant to the conformation of the contractual relationship in the context of the execution of public contracts, with regard to the powers attributed to the public contractor, and the limits to which it is bound. As a starting point, which is indispensable, we will seek to define the concept of public contracts in which, in its execution, one must consider, in general, the pursuit of the public interest and, in particular, the safeguarding or defence of competition. Subsequently, and with reference to this concept of public contract, we will make a general reflection on the characterisation and legitimisation of the powers to conform the contractual relationship, according to the interests pursued by the public contractor, and to the limits inherent to the exercise of these powers. In this context, we will address the increasing overlap between European and national law in the matter of execution of public contracts, and, in particular, the incursion of the 2014 European Union Directives addressing public contracts. Concluded the framework of the theme of this study, we will then analyse each of the so-called traditional authority powers available to the Administration for the conformation of contractual relations, namely the powers of direction, supervision, modification, sanction and unilateral termination, while also addressing specific formulations of these powers according to their contractual object. Reference will also be made to the assignment of the contractual position of the co-contractor by decision of the public contractor, introduced in the Public Procurement Code as part of the revision it underwent in 2017, as well as to the relationship between the powers to conform the contractual relationship and the contract manager, an innovation also introduced in the Code as part of that revision. Before presenting the conclusions, a very brief reference will be made to the proposal for a legislative amendment to the Public Procurement Code, which is already known at the final stage of the preparation of the present study, and which also includes a matter relating to the conformation of the contractual relationship. The conclusions of the study focus on the importance of the balance between the powers and the limits attributed and imposed on the public contractor in terms of the conformation of the contractual relationship, and on the growing importance that European Union law, we believe, will tend to assume in the substantive regime of the execution of public contracts.
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Keywords
Contrato público Código dos contratos públicos Diretiva 2014/24/UE Democratização Conformação da relação contratual Teses de mestrado - 2021