Maart 2013: jaargang 10, nommer 1 - LitNet

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Opsomming LitNet Akademies Jaargang 10 (1), Maart 2013 Die reg se oënskynlike onvermoë om korrupsie in staatskontraktering in Suid-Afrika hok te slaan Geo Quinot Geo Quinot, Departement Publiekreg, Universiteit Stellenbosch Ten spyte van ’n aansienlike aantal afdwingbare regsreëls wat staatsverkryging in Suid- Afrika reguleer, word hierdie aspek van staatsadministrasie gekenmerk deur hoë vlakke van ongerymdhede. Veral korrupsie blyk hoogty te vier as dit kom by staatskontrakte. Die vraag ontstaan dus hoekom die toepaslike reg oënskynlik nie daarin slaag om korrupsie in staatskontraktering effektief teen te werk nie. Die doel met hierdie artikel is om te fokus op die regsreëls wat spesifiek gemik is daarop om korrupsie in staatskontraktering te beveg en deur ’n ontleding van daardie reëls probleme te identifiseer wat sodanige oogmerk ondermyn. Vyf hoofprobleme in die regulering van staatsverkryging word geïdentifiseer wat bepaald die stryd teen korrupsie ondermyn, te wete die gefragmenteerde aard van die regulatoriese raamwerk, die steun op verkrygingsbeleid as die voertuig vir individuele verkrygingsreëls, die desentralisering van beide die verkrygingsfunksie en die skep van verkrygingsreëls, die inkonsekwente toepassing van gemeenregtelike reëls deur howe in verkrygingsdispute en die onsamehangende stelsel van remedies van toepassing op verkrygingstransaksies. Drie stappe word gevolglik voorgestel wat hierdie probleme kan help aanspreek. Dit is die sentralisering en konsolidering van die regulatoriese raamwerk, die skep van ’n sterk, sentrale oorsigstruktuur, en ’n herbesinning van die howe se rol in die regulering van staatsverkryging. Trefwoorde: administratiefreg; geregtelike hersiening; korrupsie; openbare finansiële bestuur; regulasie; skadevergoeding; staatskontrakte; staatsverkryging; tenders; verkrygingsbeheer Abstract The apparent failure of the law to curb corruption in public procurement in South Africa Corruption and public procurement have almost become synonymous in the public mind in South Africa. Almost every week brings new claims about some government contract that is clouded by questionable dealings, with words such as “tenderpreneurs” describing this scourge which has firmly taken root in popular discourse. The scope of alleged corruption in state contracting in South Africa is staggering, with the special investigating unit currently 215
LitNet Akademies Jaargang 10 (1), Maart 2013 investigating tender irregularities amounting to billions of rand. It is no wonder that minister Trevor Manual recently identified public procurement as the Achilles heel of government. In South African law there is, however, no shortage of regulatory measures aimed at controlling public procurement. This aspect of government conduct is highly regulated in terms of binding legal rules with fairly detailed requirements that individual procurements must meet. The question is, therefore, why corruption seems so prevalent in this area. Put differently, the question is why the law is failing to keep corruption in public procurement in check. In considering this question, this article starts with a broad outline of the regulatory measures in place to deal with corruption in public procurement in South Africa. Against this legal backdrop the article investigates the problems in the public procurement regulatory regime that contribute to the unhealthy state in which this area finds itself, and concludes with some tentative thoughts on possible solutions. Anti-corruption measures relating to public procurement in South Africa start right at the top, in the Constitution. Section 217(1) of the Constitution states that when an organ of state “contracts for goods or services, it must do so in accordance with a system which is fair, equitable, transparent, competitive and cost-effective”. Most of these goals can be directly linked to an anti-corruption agenda, with transparency being the most obvious principle pointing to the need for anti-corruption measures in South African procurement systems. But corruption will also adversely impact on the fairness, the competitiveness and the costeffectiveness of procurement so that corrupt procurement practices will also fall foul of these other constitutional imperatives. These general constitutional principles are worked out in more detail in a large number of statutes. The most relevant of these for present purposes are the Public Finance Management Act, the Municipal Finance Management Act, the Preferential Procurement Policy Framework Act and the Prevention and Combating of Corrupt Activities Act. Each of these statutes and/or the regulations promulgated under them contains particular provisions dealing expressly with corruption in public procurement. There is, therefore, no shortage of legal mechanisms aimed at curbing corruption in public procurement. High levels of procurement corruption cannot, therefore, be ascribed to a failure to grapple with the issue, at least in law. So what are the reasons why the ample law provision does not seem to be having the desired effect? An analysis of the law addressing corruption in public procurement in South Africa reveals at least five distinct problems that may undermine its effectiveness. The first problem with public procurement regulation in South Africa is the fragmented nature of the regulatory regime. There are a large number of legislative instruments dealing 216
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Maart 2013: jaargang 10, nommer 1 - LitNet

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