Report On Competition in Romania 2011

MEDIUL CONCURENTIAL ROMNESC
EVOLUTII N SECTOARE ESENTIALE

Romanian competition environment
developments in essential sectors
CONSILIUL CONCURENTEI
COMPETI TI ON COUNCI L
Bucuresti, 2011
2
2011
Mediul concurential romnesc
evolutii n sectoare esentiale
Consi l i ul Concurentei
CUPRINS
CUVNT NAINTE .........................................................................................................4
REZUMAT ....................................................................................................................6
IMPACTUL MODIFICRILOR COMISIONULUI DE RAMBURSARE ANTICIPAT
ASUPRA CREDITELOR ...............................................................................................18
CONCURENA PE PIAA DISTRIBUIEI DE MEDICAMENTE DIN ROMNIA ................40
ACHIZIIILE PUBLICE DIN ROMNIA NTRE NIVELURILE PIEEI I NEVOIA
DE ECONOMIE BUGETAR .........................................................................................66
INDICATORI PENTRU EVALUAREA CONCURENEI DIN ANUMITE SECTOARE
ECONOMICE ............................................................................................................102
3
2011
Competi ti on Counci l
CONTENTS
FOREWORD .............................................................................................................. 5
ABSTRACT ............................................................................................................... 7
THE IMPACT OF THE REVISION OF THE EARLY REIMBURSEMENT
FEE OVER THE CREDITS ................................................................................ 19
COMPETITION ON THE ROMANIAN DRUG DISTRIBUTION MARKET ........................ 41
PUBLIC PROCUREMENTS IN ROMANIA BETWEEN MARKETS DIMENSION
AND THE NEED FOR BUDGETARY SAVINGS ............................................................ 67
INDICATORS FOR ASSESSING THE COMPETITION ON CERTAIN ECONOMIC
SECTORS .............................................................................................................. 103
4
2011
CUVNT NAINTE
Anul acesta, Consiliul Concurenei lanseaz n dezbatere public cel
de-al treilea raport privind situaia concurenei n unele sectoare ale
economiei naionale. Intitulat Mediul concurenial romnesc - evoluii
n sectoare eseniale, raportul se axeaz pe 3 domenii bancar, farmaceutic i achiziii
publice. Alturi de cele 3 domenii raportul include, pentru prima dat, i un capitol dedicat
unor indicatori utilizai n evaluarea concurenei din anumite sectoare de activitate.
Modificrile cadrului legislativ privind contractele de credit pentru consumatori, generate de
OUG nr.50/2010, au condus la necesitatea evalurii impactului asupra creditelor. Pe lng
efectul direct asupra evoluiei rambursrilor anticipate i a creditelor de refinanare,
eliminarea/reducerea comisionului de rambursare anticipat afecteaz i activitatea de
renegociere a contractelor clienilor, precum i campaniile de refinanare derulate de ctre
fiecare banc n parte.
n cadrul sectorului farmaceutic, distribuia de medicamente ocup un loc esenial, avnd n
vedere efectele generate n pia i implicit asupra consumatorului final. n vederea analizrii
modului de funcionare a sistemului de distribuie practicat n Romnia, dar i a modificrilor
ce ar putea interveni n acest sistem pe termen scurt i mediu, Consiliul Concurenei a derulat
o investigaie sectorial, ale crei rezultate sunt prezentate n cadrul raportului.
Achiziiile publice pot ridica probleme legate de existena unor prevederi cu potenial caracter
anticoncurenial existente n cadrul legislativ sau de fenomenul trucrii licitaiilor de ctre
agenii economici participani la licitaie. Alturi de activitatea de investigare a unor licitaii
trucate, anul acesta, autoritatea de concuren a efectuat o analiz privind eficiena sistemului
de achiziii publice, din punct de vedere al preurilor practicate n cadrul contractelor derulate
cu diferite autoriti contractante.
Pentru facilitarea monitorizrii i evalurii concurenei din diferite piee i sectoare economice,
Consiliul Concurenei i-a propus elaborarea unor metodologii i dezvoltarea unor indicatori
care s poat releva situaia concurenei din pieele analizate. n acest sens, ultimul capitol
al raportului se axeaz pe prezentarea unor indicatori folosii pentru monitorizarea concurenei
din sectorul bancar, sectorul farmaceutic i sectorul construciei de drumuri.
Sperm, ca prin coninutul su, raportul s suscite un real interes n rndul tuturor celor interesai,
n vederea identificrii celor mai adecvate msuri pentru creterea gradului de concuren. Nu
putem ncheia fr a mulumi tuturor autoritilor i instituiilor ce au participat alturi de
noi la elaborarea acestui raport, informaiile obinute i consultrile pe anumite probleme
aducnd un plus de cunoatere a evoluiilor din sectoarele analizate.
Preedinte,
Bogdan M. CHIRIOIU
AAn
dde
eec
n secttoare eseni i l ale, r
5
2011
FOREWORD
This year, the Competition Council launches a public debate on the
third report on the competition on certain national economic sectors.
The report - Romanian competition environment developments in
essential sectors - focuses on 3 fields, namely the banking sector, the pharmaceutical
sector and public procurements. Additionally, for the first time, the report includes a chapter
concerning several indicators used to assess the competition on certain sectors.
The amendments of the legal framework on consumer credit contracts generated by
Government Emergency Ordinance no.50/2010 has led to the necessity of evaluating their
impact over the credits. Alongside the direct effect over the evolution of the early
reimbursements and over the refinancing credits, the elimination/reduction of the early
reimbursement fee also influences the renegotiation of the on-going client contracts, as
well as the the refinancing campaigns carried out by each bank.
In the pharmaceutical sector, drug distribution plays an essential role, because of its effects
over the market and, implicitly, over the final consumer. In order to assess the functioning
of the Romanian drug distribution system, as well as of the possible changes on the short
and medium term, the Competition Council has carried out a sector inquiry; its conclusions
are included in the report.
Public procurements may raise issues related to the existence of certain possible
anticompetitive provisions stipulated by the legal framework or may be affected by the
phenomena of bid rigging carried out by the bidding undertakings. In addition to
investigating several bid riggings, this year, the competition authority has undertaken an
analysis of the efficiency of the public procurement system, as regards the prices
established within the contracts concluded with different contracting authorities.
In order to facilitate the monitoring and the assessment of the competition on different markets
and economic sectors, the Competition Council has started to develop certain methodologies
and indicators for evaluating the competition on the analysed markets. In this respect, the last
chapter of the report focuses on presenting certain indicators for monitoring the competition
on the banking sector, the pharmaceutical sector and the road construction sector.
We hope that the report with its topics will attract the attention of all stakeholders, so as
to identify the most adequate measures designed to increase the level of competition. We
cannot conclude without thanking all the institutions and authorities participating along us
in drafting this report. In this process, the obtained data and the consultations on different
issues have added valuable knowledge on the analysed sectors.
President,
Bogdan M. CHIRIOIU
he e
rs.
in n
tor, th the h pharmace t utiic l al
6
2011
REZUMAT
Consiliul Concurenei supune, n fiecare an, dezbaterii publice un raport privind situaia
concurenei n anumite sectoare sensibile ale economiei. Pentru acest an, raportul analizeaz
trei domenii: bancar, farmaceutic i achiziii publice - a cror importan i fluctuaie a
activitii pot afecta semnificativ evoluia de ansamblu a economiei naionale.
Pentru prima dat, raportul cuprinde un capitol distinct dedicat unor indicatori de msurare
a concurenei din anumite sectoare de activitate, ncercnd s surprind, de o manier
sintetic, rezultatele unui proiect derulat de autoritatea de concuren n ultimii 2 ani.
a) Impactul modificrilor comisionului de rambursare anticipat asupra creditelor
Din perspectiva domeniului bancar, raportul i propune s realizeze o analiz privind
impactul modificrilor generate la nivelul comisionului de rambursare anticipat asupra
creditelor, conform prevederilor OUG nr.50/2010 privind contractele de credit pentru
consumatori (denumit n continuare Ordonan).
Scopul urmrit prin introducerea dispoziiilor referitoare la eliminarea sau, dup caz,
reducerea comisionului de rambursare anticipat la toate creditele destinate
consumatorilor persoane fizice a fost creterea corect a concurenei ntre bnci, ca
urmare a creterii gradului de mobilitate a clienilor. Un indicator important n constatarea
realizrii acestui obiectiv s-a concretizat n evoluia activitii de refinanare la nivelul
sistemului bancar din Romnia.
n perioada ulterioar apariiei Ordonanei (iunie 2010 mai 2011), numrul total al
creditelor refinanate s-a dublat comparativ cu perioada anterioar (iunie 2009 mai
2010). n aceast perioad s-au acordat aprox.160 mii de credite de refinanare,
comparativ cu 85,5 mii credite de refinanare acordate n perioada iunie 2009 mai 2010.
Prin urmare, cel puin 160 mii de clieni au beneficiat n mod direct de eliminarea/
reducerea comisionului de rambursare anticipat. Acestora li se adaug clienii care
au efectuat n aceast perioad rambursri anticipate ale creditelor, pariale (229 mii
clieni) sau totale (altele dect refinanrile), precum i cei care i-au renegociat
contractele n condiii mai favorabile.
Volumul cumulat al creditelor de refinanare n lei n perioada iunie 2009 mai 2010 este de
1.027 mil. lei, iar volumul cumulat al creditelor de refinanare n lei n perioada iunie 2010
mai 2011 este de 2.169 mil. lei. Pentru comparaie, volumul de credite n sold acordate
gospodriilor populaiei la nivelul lunii mai 2011 a fost de 35.402 mil. lei. Prin urmare, n cele
12 luni ulterioare apariiei Ordonanei, volumul total al creditelor de refinanare n lei
s-a dublat fa de perioada anterioar corespunztoare. n acelai timp, acest volum
reprezint 6% din volumul creditelor n sold acordate gospodriilor populaiei.
7
2011
ABSTRACT
Every year, the Competition Council launches a public debate on the report of the competition
in certain sensible economic sectors. This year, the report analyses three fields: the banking
sector, the pharmaceutical sector and public procurements because their importance and
fluctuation can affect significantly the overall evolution of the national economy.
For the first time, the report includes a distinct chapter presenting several competition
assessment indicators intended to be applied in certain sectors. This chapter aims to summarise
the results of a project carried out by the competition authority for the past two years.
a) The impact of the revision of the early reimbursement fee over the credits
As regards the banking field, the report analyses the impact of the revision of early
reimbursement fee over the credits, according to the Emergency Government Ordinance
no.50/2010 on consumer credit contracts (hereinafter Ordinance).
The aim of introducing the provisions on the elimination/reduction of the early
reimbursement fee for all consumer credits (natural persons) has been the fairly
increase of competition between banks, as a result of the increased inter-bank
client mobility. An important indicator for assessing the achievement of this objective
has been concretised in the evolution of the refinancing activity within the Romanian
banking system.
After the adoption of the Ordinance (June 2010 May 2011), the total number of the
refinanced credits has doubled compared to the previous period (June 2009 May 2010).
In this period, around 160,000 refinancing credits have been granted, compared to 85.5
thousands refinancing credits granted during June 2009 May 2010. As a result, at least
160,000 clients have benefited directly from the elimination/reduction of the early
reimbursement fee. The clients which have early reimbursed their credits partially
(229,000 clients) or totally (other than the refinancing credits), have also benefited
from these conditions, together with those which have renegotiated their contracts
so as to benefit from more favourable conditions.
The cumulated volume of the refinancing credits granted in RON during June 2009 May
2010 is of RON 1,027 million, and the one granted during June 2010 May 2011 is of
RON 2,169 million. By comparison, the volume of consumers credits remaining to be
reimbursed at the moment May 2011 has been of RON 35,402 million. Consequently,
during the 12 months after the adoption of the Ordinance, the total volume of the
refinancing credits has doubled compared to the corresponding previous period. At
the same time, this volume is 6% of the volume of consumers credits remaining to be
reimbursed.
8
2011
Volumul creditelor refinanate n valut, n perioada iunie 2010 mai 2011, a fost de 338
mil. euro.
Considernd, n medie, o reducere cu 3 puncte procentuale a comisionului de rambursare
anticipat pltit de clienii bancari care i-au refinanat creditele, n perioada urmtoare
apariiei Ordonanei, prevederile art. 67 au condus la economii de aprox. 65 milioane lei i
10 milioane euro.
De asemenea, prevederile Ordonanei au influenat n mod direct un numr total de aproximativ
229 mii de rambursri anticipate pariale ale creditelor acordate n lei i valut, iar volumul
corespunztor plilor anticipate a fost de 542,2 milioane lei, respectiv 261,9 milioane euro.
Totodat, aplicnd o reducere medie de 3 procente a comisionului de rambursare
anticipatclienilor bancari care au rambursat anticipat o parte din credit, n perioada urmtoare
apariiei Ordonanei, rezult economii de aprox. 16 milioane lei, respectiv 7,85 milioane euro.
b) Distribuia angro de medicamente din Romnia
Ca parte component a sectorului farmaceutic, distribuia angro de medicamente din
Romnia joac un rol extrem de important, cu efecte directe i vizibile la nivelul utilizatorului
final. n vederea analizrii modului de funcionare a sistemului de distribuie practicat n
Romnia, dar i a modificrilor ce ar putea interveni n acest sistem pe termen scurt i mediu,
Consiliul Concurenei a derulat o investigaie sectorial n urma creia s-au constatat anumite
disfuncionaliti legate n primul rnd de accesul distribuitorilor la anumite medicamente.
Din punctul de vedere al accesului pe piaa distribuiei angro se poate afirma c nu
exist limitri ntr-o msur semnificativ, generate de existena unor relaii de
exclusivitate sau de distribuia printr-un numr redus de distributori. Cu toate acestea,
n cadrul investigaiei au fost identificate i anumite piee pe care accesul distribuitorilor i,
n general, al distribuitorilor mici, este dificil.
Din analiza efectuat a rezultat faptul c, dei exist diferene semnificative de pre, pe toate
pieele unde exist variante generice ale medicamentelor inovative cel mai bine vndute,
nu numai c medicamentele generice nu au reuit s penetreze piaa, dar vnzrile celor
mai ieftine medicamente generice reprezint sub 1% din valoarea total a pieei.
n ceea ce privete medicamentele decontate ce se acord n cadrul programelor naionale
de sntate, att n anul 2009, ct i n prezent, prescrierea acestora se face pe baza
Denumirii Comune Internaionale. Cu toate acestea, Casa Naional de Asigurri de Sntate
suport valoarea integral a preului de vnzare cu amnuntul al fiecrui medicament care
se acord n cadrul programelor naionale de sntate. Astfel, farmaciile nu au niciun
stimulent pentru a le comercializa la un pre mai mic, dei acestea pot obine
discounturi semnificative de la distribuitorii de medicamente.
Prin urmare, prin practicarea acestui sistem, se elimin principala form de concuren
cu privire la aceste medicamente, i anume concurena prin pre, att la nivelul
9
2011
During June 2010 May 2011, the volume of the refinanced credits in foreign currency
has been of EUR 338 million.
Considering an average reduction of 3% to the early reimbursement fee paid by bank
clients in the period after the adoption of the Ordinance, putting into effect the
provisions of art. 67, it led to savings of approx. RON 65 million, respectively EUR
10 million.
Moreover, the provisions of the Ordinance have influenced directly around 229,000 early
reimbursements of the credits granted in RON and in foreign currency, and the volume of
the early reimbursements has been of RON 542.2 million and of EUR 261.9 million.
At the same time, by applying an average reduction of 3% to the early reimbursement fee
paid by the bank clients who have reimbursed part of their credits, it results that after the
adoption of the Ordinance savings of around RON 16 million and EUR 7.85 million have
been generated.
b) Romanian drug wholesale market
As part of the pharmaceutical sector, Romanian drug wholesale market pays an extremely
important role, with direct and visible effects over the final consumer. In order to assess
the functioning of the Romanian drug distribution system, as well as the possible changes
on the short and medium term, the Competition Council has carried out a sector inquiry,
which has revealed certain dysfunctions mainly related to the access of distributors to
certain drugs.
As regards the access on the drug wholesale market, it can be stated that there are
no significant limitations, generated by certain exclusivity relations or by the
distribution performed through a low number of distributors. However, within the
investigation have been identified certain markets where distributors and especially small
distributors have difficulties to enter.
The analysis has showed that, although there are significant price differences, on all
the markets where the best sold innovative drugs have generic variants, generics
did not succeed to penetrate the market but the sales of the cheapest generics have
represented less than 1% of the total market value.
In respect to the settled drugs within the Romanian national health programmes, in 2009,
as well as at present, their prescription is made based on their International Common
Name. However, the National Health Insurance House settles the entire value of the retail
price for each drug granted within the national health programmes. Therefore, pharmacies
have no incentive to trade them at a lower price, although they could obtain
significant discounts from drug distributors.
As a result, by applying this system, the main form of competition, the price competition
between producers and between pharmacies, is being eliminated in the detriment of
10
2011
productorilor, ct i la nivelul farmaciilor, n detrimentul bugetului alocat programelor
naionale i, n final, al pacienilor. Avnd n vedere creterea cheltuielilor cu medicamentele
care se acord n cadrul programelor naionale de sntate, este necesar introducerea
unui sistem de refereniere a preurilor n cazul acestor medicamente, cel puin n
cazurile n care exist mai multe medicamente cu aceeai Denumire Comun
Internaional. Introducerea acestor msuri va conduce, pe de o parte, la reducerea
cheltuielilor statului cu aceste medicamente i, pe de alt parte la promovarea medicamentelor
generice pe msur ce acestea intr pe pia.
Ministerul Sntii a propus ca modul de calcul al preurilor de decontare a medicamentelor
care se acord bolnavilor cuprini n cadrul programelor naionale de sntate nominalizate
prin hotrre de guvern, n condiiile legii, s fie stabilit ntr-un mod care s permit realizarea
de economii la bugetul alocat sntii. Astfel, preul cu ridicata ar fi fost preul de productor
diminuat cu 15%, la care urma s se adauge adaosul de distribuie.
Consiliul Concurenei a atras atenia asupra faptului c aceast metod de calcul ar
putea avea ca efect creterea atractivitii exporturilor de astfel de medicamente. Prin
urmare, msura ar putea conduce la nregistrarea unui deficit de medicamente pe
piaa romneasc, cu posibile consecine asupra strii de sntate a bolnavilor cronici
inclui n programe naionale de sntate.
Sensibilitatea distribuiei de medicamente i efectele acesteia n pia conduc n acordarea
i pe viitor a unei atenii deosebite acestui subiect, pentru a elimina posibilitatea de
manifestare a unor poteniale practici anticoncureniale.
c) Eficiena sistemului de achiziii publice din Romnia
Achiziiile publice pot ridica, printre altele, probleme legate de existena unor prevederi cu
potenial caracter anticoncurenial existente n cadrul legislativ sau de fenomenul trucrii
licitaiilor de ctre agenii economici participani la licitaie. Alturi de aceste elemente, preul
joac un rol primordial n licitaiile publice, fiind unul din elementele ce pot concura n
realizarea unor economii bugetare. Stabilirea valorii estimate a produselor, lucrrilor i
serviciilor licitate ct mai aproape de preul acelorai produse de pe pia trebuie s
reprezinte elementul de baz al oricrui contract de achiziie public.
n afara investigaiilor derulate n acest domeniu i al colaborrii cu celelalte autoriti cu
atribuii n sfera achiziiilor publice, anul acesta Consiliul Concurenei a efectuat o analiz
comparativ privind nivelul preurilor din cadrul contractelor cu diferite autoriti contractante
i al celor practicate pentru ali clieni pentru un numr de patru produse, respectiv: motorin
euro 5, ulei, cartofi i hrtie xerox. Obiectivul acestei cercetri a fost acela de a stabili
dac preurile produselor livrate autoritilor contractante prin diferite proceduri de
licitaie au fost mai mici dect cele facturate altor clieni neguvernamentali.
Pe ansamblul celor 4 produse (motorin, ulei, cartofi i hrtie xerox), rspunsul la ntrebarea: Sunt
preurile din contractele de achiziii publice mai mici dect cele facturate altor clieni? este
Nu, cu mici excepii de la un produs la altul sau de la o procedur de licitaie la alta.
11
2011
the budget allocated for the national programmes and, finally, of patients. Taking into
consideration the increase of the drug expenses granted within the national health
programmes a reference price system in respect to these drugs, it is necessary to be
introduced, at least for the cases when there are several drugs with the same
International Common Name. Such measures will generate on one hand the decrease of
States expenses with these drugs and on the other hand the promotion of generics as they
are entering on the market.
The Ministry of Health has proposed that the calculation of the settlement price for the
drugs intended for the patients treated within the national health programmes stipulated
by Government Decision, according to the law, to be established so as to generate savings
for the health budget. Thus, the retail price would have been the producer price diminished
by 15%, following to be completed by the distribution mark-up.
The Competition Council has signalled that this calculation method could have as
effect the increase of the exports of such drugs. As a result, the measure could lead
to a drug deficit on the Romanian market, with possible consequences over the
health condition of the chronically ill patients included in the national health
programs.
The sensitivity of drug distribution and its effects on the market are the reasons for
continuing the surveillance of this market, in order to eliminate the possible anticompetitive
practice
c) Efficiency of the Romanian public procurement system
Public procurements may raise among others, issues related to the existence of certain
possible anticompetitive provisions stipulated by the legal framework or may be affected
by the phenomena of bid rigging carried out by the bidding undertakings. Additionally, the
price plays a critical role within public tenders, and it is one of the elements which can
help in achieving budgetary savings. Establishing the estimated value of the bidded
products, works and services as closer as possible to the market price must be the basic
element of a public procurement contract.
Apart from the investigations carried out in this field and the cooperation with other
authorities with competences in public procurements, the Competition Council has
undertaken a comparative analysis between the prices resulted applied in the contracts
concluded with different contracting authorities and the ones charged to other clients. The
analysis has envisaged four products, namely: Euro 5 diesel, cooking oil, potatoes and copy
paper. The aim of this research has been to establish if the prices of the products
delivered to the contracting authorities through different tender procedures were
lower than the ones charged to other nongovernmental clients.
For the 4 products, the general answer to the question: Are the prices resulted from
the public contracts lower than the ones charged to other clients? is No, with
small exemptions, depending on the product and on the tender procedure.
12
2011
Analiza achiziiilor publice pentru cele 4 produse a pus n eviden faptul c, n general, prin
licitaiile online preurile contractelor ncheiate cu diferite autoriti i instituii publice
sunt mai reduse fa de preurile facturate altor clieni neguvernamentali. Majorarea
progresiv a plafonului licitaiilor online poate avea drept efect realizarea de economii
bugetare din sistemul de achiziii publice.
n privina achiziiei de motorin, preurile variaz ca urmare a creterii preurilor la
productor, aceast situaie putnd fi explicat pe seama creterii cotaiilor internaionale.
Cele mai importante probleme se regsesc ns la achiziia uleiului de gtit i cartofilor.
Astfel, uleiul pentru gtit este procurat de autoritile contractante cu precdere de la
intermediari, ale cror preuri de comercializare sunt net superioare preurilor productorilor.
Din cei 18 ageni economici, ce au dat curs cererii de informaii a autoritii de concuren,
doar unul singur este productor de ulei, restul fiind intermediari i ca urmare, practicnd
preuri peste preul productorului, att n cazul contractelor de achiziie public ct i al
celor aferente altor clieni. Preul mediu al intermediarilor n contractele analizate
depete, n mod regulat, cu peste 10 procente preul productorului, analiza
diferenelor de pre putnd fi realizat doar de la caz la caz, respectiv de la un contract de
achiziie la altul.
La cartofi, preul practicat n contractele de achiziie public nglobeaz alturi de
caracterul sezonier al produsului i un nivel destul de ridicat al adaosului comercial
practicat de operatorii economici. Achiziia de cartofi de la intermediari se realizeaz la
preuri net superioare preurilor de la productor sau grupuri de productori, acetia fiind n
imposibilitatea de a participa la licitaii, fie din cauza gradului redus de transparen al
achiziiilor, fie din cauza existenei unor bariere, mai mult sau mai puin justificate. Din analiza
contractelor de achiziie public a reieit faptul c preurile productorilor la cartofi variaz,
n perioadele de producie, ntre 0,65 lei/kg i 0,97 lei/kg (fr TVA), pentru ca preurile
intermediarilor s se situeze sistematic peste acest nivel.
Procurarea de cartofi direct de la productori poate avea ca efect realizarea unor economii
nsemnate de ctre autoritile contractante. ncurajarea fenomenului de creare de grupuri
de productori, cu putere de negociere i cu personalitate juridic, constituie un prim
pas n ncercarea de valorificare a produciei interne, inclusiv prin mecanismul
achiziiei publice. Dac pn n iunie 2011, existau 4 grupuri de productori ce funcionau
nc din 2006/2007, din care 3 n judeul Braov i unul n Constana, la momentul actual
mai exist nregistrate doar 2 grupuri de productori, unul n Braov iar cellalt n Constana.
Ca i n cazul altor produse agroalimentare, nfiinarea de cooperative integrate se lovete
i n cazul cartofului fie de reticena productorilor agricoli legat de nencrederea n
fenomenul cooperatist, fie de existena unei legislaii prea stufoase, care de multe ori
sufoc activitatea unor astfel de entiti.
n cazul ultimului produs analizat, hrtia xerox, preurile de achiziie variaz de la un jude
la altul, existnd, ns, o tendin vizibil de reducere fa de nivelul preurilor practicate
ctre ali clieni neguvermentali.
13
2011
The analysis of the public tenders for the 4 products has highlighted that, in general, the
online tenders provide lowest prices for the contracts concluded with the contracting
authorities compared to the ones charged to other nongovernmental clients. The
progressive increase of the online tenders could generate budgetary savings from the
public procurement system.
As regards the diesel procurement, prices vary as a result of the price increase performed
by producers, or this can be explained by the rising international oil quotations.
The main important issues are related to the cooking oil and the potatoes. The contracting
authorities mainly procure the cooking oil from intermediaries, which have selling prices
obviously superior than the producers. Out of the 18 undertakings that have responded
to the information request of the competition authority, only one is an oil producer, the
rest of them being intermediaries. As a result, in the contracts subject to public tenders
and in the contracts concluded with other clients as well, they charge prices over the
producer price. In the analysed contracts, as a rule, the average price of the
intermediaries overcomes the producer price by over 10%; an analysis of the price
differences can be made only on a case by case basis, respectively from a contract to
another.
In potatoes case, the price, as it has resulted from the public contracts, is influenced
by the seasonal nature of the product and by the quite high trade mark-up used by
the undertakings. Potatoes procurement from intermediaries is being done at clearly high
prices compared to the ones charged by producers or by producers groups. The last ones
are not able to attend tenders because of the low level of transparency, or because of
certain barriers, more or less justified. The analysis of the public procurement contracts
has revealed that potatoes producer prices are fluctuating during the production times,
between 0.65 RON/kg and 0.97 RON/kg (without VAT), and the intermediaries prices are
systematically over these levels.
Procuring potatoes directly from producers can generate significant savings for the
contracting authorities. Encouraging the creation of producers groups, with bargaining
power and juridical personality, is a first step in trying to capitalise the internal
production, including public procurement mechanism. If until June 2011, there were
4 producers groups functioning starting from 2006/2007, out of which 3 in Braov County
and one in Constana County, nowadays only 2 producers groups are still activating, one
in Braov and the other one in Constana.
As in the case of other food products, the setting up of potatoes integrated cooperatives
is hampered by the reticence of the agricultural producers generated by the mistrust in
the cooperative model, or by the too thick legislation, which suffocates the activity of
such entities.
In the case of the last analysed product - the copy paper -, the acquisition price varies
from county to county; however, there it has a visible decreasing tendency compared to
the level charged to other nongovernmental clients.
14
2011
O atenie deosebit trebuie, ns, acordat i pe viitor procesului de monitorizare al achiziiilor
publice. Practicarea, n unele cazuri, a unor preuri mult mai mari pentru autoritile
contractante fa de alte contracte rezultate din licitaii poate ridica suspiciuni legate
de trucarea licitaiilor pe vertical i orizontal.
n acest caz, colaborarea activ a tuturor instituiilor cu atribuii n domeniul achiziiilor
publice, att din punct de vedere al eliminrii unor posibile disfuncionaliti, precum
i al sancionrii cu severitate a oricror ncercri de trucare a licitaiilor, se va
repercuta favorabil asupra nivelului cheltuielilor alocate pentru procurarea de bunuri
i servicii de ctre autoritile contractante.
d) Indicatori pentru evaluarea concurenei din anumite sectoare economice
Un obiectiv important pentru Consiliul Concurenei l constituie dezvoltarea de metodologii i
indicatori cu coninut economic pe baza crora s poat fi evaluat nivelul concurenei din
anumite piee i sectoare economice. Evaluarea concurenei din sectoarele economiei faciliteaz
ndeplinirea atribuiilor derivate din aplicarea prevederilor legii concurenei i faciliteaz
interaciunea cu alte autoriti de supraveghere i reglementare a activitii economice.
Construcia de indicatori dedicai evalurii bunei funcionri a sectoarelor din economie
necesit identificarea seturilor de date disponibile public sau a datelor care pot fi colectate
cu un efort logistic rezonabil, avnd n vedere optimizarea utilizrii resurselor umane i de
timp la nivelul autoritii de concuren.
Indicatorii care au semnificaie pentru politica de concuren, respectiv care pot constitui o
baz de evaluare pentru intensitatea concurenei din sectoarele economiei, se pot grupa n
urmtoarele categorii:
1. Indicatori care vizeaz structura i dimensiunea pieei sunt considerai
eseniali n etapa de definire a pieei relevante, fiind necesari pentru stabilirea
tipului de pia analizat; dei pentru analiza dimensiunii pieei se utilizeaz
cu precdere indicatori statici, trebuie amintit faptul c pieele sunt dinamice,
dimensiunile lor evolueaz n timp, iar structurile interioare se modific,
schimbndu-se astfel i fizionomia pieelor; cei mai uzuali indicatori ce vizeaz
structura i dimensiunea pieei sunt: aria de cuprindere a pieei, numrul de
ntreprinderi active pe pia, valoarea pieei i numrul de produse din pia.
2. Indicatori ai gradului de concentrare a pieei: teoria economic indic o
legtur direct ntre gradul de concentrare a pieei i performana
ntreprinderilor din pia; n plus, autoritile de concuren stabilesc praguri
de decizie n raport cu cotele juctorilor dintr-o pia; exist mai muli indicatori
de concentrare a pieei, fiecare dintre acetia plecnd de la calculul cotelor de
pia; n general, acestea se calculeaz pe baza valorii produselor/serviciilor
comercializate, dar ele pot fi calculate i pe baza volumului de produse/servicii
comercializate (n funcie de specificul pieei); principalii indicatori ai gradului
de concentrare a pieei sunt urmtorii: rata de concentrare, indicele Herfindahl-
15
2011
However, a special attention must be paid to the monitoring process of the public
procurements. The cases when the prices paid by the contracting authorities are
higher than the ones resulted from other tenders can create suspicions concerning
the possible horizontal or vertical bid riggings.
In these cases, the active cooperation of all institutions with attributions in the
field of public procurements as regards the elimination of possible dysfunctions
as well as sanctioning of any bid rigging attempt will have a positive effect over
the expenses of the contracting authorities related to the procurement of goods
and services.
d) Indicators for assessing competition on certain sectors
An important objective of the Competition Council is to develop methodologies and
economic-based indicators that can be used for assessing the competition on certain
markets and economic sectors. Evaluating the competition on the national economy
facilitates the application of the Competition Law and the interaction with other surveying
and regulatory authorities.
The development of indicators for evaluating the proper functioning of the economic sectors
requires identifying the sets of public available data or of the data that can be collected
through a reasonable logistical effort, taking into account the optimisation of the human
and time resources of the institution.
The significant indicators for the competition policy, namely which can represent a base
for assessing the intensity of the competition on economic sectors, can be grouped on the
following categories:
1. Indicators envisaging the structure and the dimension of the market: they are
essential for the relevant market definition and are necessary for establishing the
type of the analysed market; although static indicators are mainly used to measure
the dimension of a market, it must be noted that markets are dynamic, their
dimensions evolve in time and their internal structure modifies and as a result,
markets acquire a different physiognomy; the most common indicators envisaging
the structure and the dimension of the market are: the market area, the number of
market players, the market value and the number of market products.
2. Market concentration indicators: the economic theory indicates a direct
relation between the level of market concentration and the economic
performance of the undertakings on a certain market; moreover, competition
authorities establish decision thresholds based on the shares of the players on
a certain market; there are several market concentration indicators, each of
them originating from the market shares. In general, they are calculated based
on the value of the traded products/services; according to the market specifics,
they can also be calculated based on the volume of the traded products/
services; the main market concentration indicators are the following:
16
2011
Hirschman, indicele Hall-Tideman, indicele Panzar-Rosse, Indicele Comprehensiv
al Concentrrii.
3. Indicatori de profitabilitate productivitate; aceti indicatori pot avea
relevan pentru evaluarea concurenei atunci cnd se urmrete evoluia lor
n timp sau atunci cnd se compar magnitudinea lor cu indicatori pentru piee
similare, dar separate geografic; indicatorii de profitabilitate pot transmite
semnale cu privire la prezena sau absena concurenei dintr-o pia, dar numai
atunci cnd sunt comparai cu un nivel de referin bine stabilit; acest nivel l
poate constitui profitabilitatea dintr-o alt pia similar, dar distinct geografic
de piaa analizat; de asemenea, analiza prezenei mutaiilor structurale n
seria de timp a ratelor profitabilitii dintr-un sector poate transmite semnale
cu privire la poteniale comportamente anticoncureniale.
4. Indicatori specifici: aceti indicatori se pot regsi sub forma mecanismelor
de formare a preului, indicatorilor privind diferenialul de dobnd, analizei
evoluiei cotelor de pia etc.; fiecare sector economic are anumite particulariti
structurale i funcionale n raport cu care se pot defini indicatori specifici
relevani pentru evaluarea concurenei; astfel de indicatori sunt: indicatori
structurali de tip market power sau indici ai diferenialului de dobnd la
credite acordate / depozite atrase.
n cadrul raportului, aceste baterii de indicatori au fost testate pe trei domenii, respectiv
bancar, farmaceutic i al construciilor de drumuri, urmnd a fi aplicate ulterior n cazurile
analizate de autoritatea de concuren.
17
2011
Concentration Ratio, Herfindahl-Hirschman Index, Hall-Tideman Index, Panzar-
Rosse Index, and Comprehensive Concentration Index.
3. Profitability productivity indicators: these indicators can be relevant for
assessing the competition when their value is monitored over the time or when
their magnitude is compared to the one of the indicators for similar, but
geographically distinctive markets; profitability indicators can signal the
presence or the absence of the competition on a certain market, but only when
they are compared to a well-defined reference level; this level can be the level
of profitability of another similar but geographically distinctive market;
moreover, the analysis of the structural mutations in a certain sector in the
time series of sectors profitability rates can signal potential anticompetitive
behaviours.
4. Specific indicators: these indicators can take the form of price formation
mechanisms, interest rate differential indexes, the analysis of market shares
evolution etc; every economic sector has certain structural and functional
characteristics based on which relevant specific indicators for assessing the
competition may be defined; such indicators are: market power structural
indicators or interest rate differential indexes concerning the credits granted,
bank deposit, price setting mechanism.
Within the report these batteries of indicators have been tested on three fields banking,
pharmaceuticals and road construction. These tests are to be applied in the cases analysed
by the competition authority in the near future.
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2011
IMPACTUL MODIFICRILOR COMISIONULUI DE

RAMBURSARE ANTICIPAT ASUPRA CREDITELOR
Sectorul bancar are o importan deosebit n economia oricrei ri. De aceea, el
reprezint o preocupare constant a autoritilor att la nivel naional, ct i la nivel
comunitar.
Pentru a reduce diferenele substaniale ntre legislaiile naionale privind creditele pentru
persoanele fizice, n general, i creditele de consum, n special, Comisia European a emis
Directiva 2008/48/CE din 23 aprilie 2008 privind contractele de credit pentru consumatori
(denumit n continuare Directiv). Transpunerea actului normativ european n legislaia
romneasc s-a realizat prin Ordonana de Urgen nr. 50/2010 privind contractele de
credit pentru consumatori (denumit n continuare Ordonan) aprobat cu modificri
prin Legea nr. 288/2010. Implementarea propunerii Consiliului Concurenei de extindere,
n cadrul Ordonanei, a sferei de aplicare a prevederilor Directivei privind eliminarea/
reducerea comisionului de rambursare anticipat i la alte categorii de credite, precum
i la creditele aflate n derulare, a dus la creterea gradului de mobilitate a clienilor i
implicit, a nivelului de concuren de pe piaa bancar de retail.
Cuvinte cheie: refinanare, comision rambursare anticipat, mobilitate clieni bancari.
1. Introducere
Necesitatea reglementrii creditelor pentru consumatori la nivel comunitar s-a evideniat n
urma unor rapoarte i consultri succesive efectuate de ctre Comisia European n ultimii
ani, care au relevat diferene substaniale ntre legile diferitelor state membre ale Uniunii
Europene, n domeniul creditelor pentru persoane fizice, n general, i al creditelor de consum,
n special. O analiz a legilor naionale a artat c statele membre utilizeaz diverse
mecanisme de protecie a consumatorului, datorit situaiilor juridice sau economice diferite
la nivel naional.
n acest context s-a observat c, n realitate, situaia de fapt i de drept creat ca rezultat
al acestor diferene naionale conduce, n anumite cazuri, la denaturarea concurenei ntre
furnizorii de servicii financiare din Comunitate i mpiedic buna funcionare a pieei interne,
atunci cnd statele membre au adoptat dispoziii obligatorii diferite, mai stricte dect
reglementrile europene existente n materie
1
. Aceast situaie limiteaz posibilitatea
consumatorilor de a beneficia direct de avantajele ofertei de credite transfrontaliere, care
1 Directiva 87/102/CEE a Consiliului din 22 decembrie 1986 de apropiere a actelor cu putere de lege i a actelor administrative
ale statelor membre privind creditul de consum.
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2011
THE IMPACT OF THE REVISION OF THE EARLY
REIMBURSEMENT FEE OVER THE CREDITS
The banking system has a special importance in the economy of every country. For this
reason, it is constantly under the analysis of both national and Community competition
authorities.
In order to reduce the significant differences between the national legislation concerning
the natural persons credits, in general, and, the consumption credits, in particular, the
European Commission has issued Directive 2008/48/CE of 23 April 2008 on credit
agreements for consumers (hereinafter the Directive). The transposition of the European
normative act in the Romanian legislation has been achieved through the Government
Emergency Ordinance no.50/2010 on credit agreements for consumers (hereinafter the
Ordinance) approved with amendments by Law no.288/2010. The implementation of
Competition Councils proposal of extending through the Ordinance the application
of Directives provisions in respect to the elimination/reduction of the early reimbursement
fee to other credit categories, as well as to the on-going credits, has generated increased
client mobility and, implicitly, higher competition on the retail banking market.
Key words: refinancing, early reimbursement fee, inter-bank client mobility.
1. Overview
The need to regulate the credit agreements for consumers at Community level has resulted
from certain successive reports and consultations carried out during the past years by the
European Commission. They have highlighted significant differences between the EU
Member States concerning the natural persons credits, in general, and, the consumption
credits, in particular. An analysis of the national laws has revealed that the EU Member
States are using different consumer protection mechanism, as a result of the various
national juridical and economic conditions.
In this context, it has been noticed that, in reality, the fact and law situation resulting from
these national differences leads, in certain cases, to the alteration of the competition
between the Community financial services suppliers and hampers the proper functioning
of the internal market when EU Member States have different mandatory provisions, stricter
than the specific European regulations
1
. This situation limits the possibility of consumers
to benefit directly from the advantages of the cross-border credit, which records a
1 Directive 87/102/EEC of 22 December 1986 for the approximation of the laws, regulations and administrative provisions of
the Member States concerning consumer credit.
20
2011
cunoate o dezvoltare progresiv. Denaturrile i limitrile menionate pot avea, la rndul
lor, consecine asupra cererii de bunuri i servicii, mai ales c, n ultimii ani, tipurile de credite
oferite consumatorilor i folosite de ctre acetia au evoluat n mod considerabil, determinnd
apariia unor noi instrumente de credit.
Prin urmare, modificarea dispoziiilor existente la nivel comunitar i extinderea domeniului
lor de aplicare a aprut ca o necesitate fireasc, concretizat prin Directiva 2008/48/CE a
Parlamentului European i a Consiliului din 23 aprilie 2008 privind contractele de credit
pentru consumatori.
Un element foarte important pentru realizarea obiectivului propus de Comisia European este
creterea gradului de mobilitate a clienilor. Altfel spus, pentru a avea posibilitatea de a
accesa alte oferte de creditare (naionale sau transfrontaliere) mai favorabile, persoana care
a contractat un mprumut trebuie s aib posibilitatea real de a ncheia contractul actual
de credit, chiar nainte de expirarea termenului/duratei convenite.
Gradul de mobilitate a clienilor este influenat de mai muli factori, printre cei mai
importani identificndu-se:
costurile aferente terminrii relaiilor contractuale, ntre acestea o pondere
nsemnat fiind reprezentat de taxele i comisioanele datorate de ctre debitor
instituiei creditoare pentru rambursarea anticipat a mprumutului acordat;
existena unor oferte competitive din partea bncilor, ce pun la dispoziia
consumatorilor condiii mai avantajoase de creditare;
asimetria informaiei i gradul de transparen al acesteia acestea se
reflect n mod direct asupra costurilor aferente procedurilor de cutare a
ofertei celei mai favorabile pentru necesitile unui consumator;
alte bariere de natur administrativ (ex. reglementri legale).
n Raportul OECD Competition and Regulation in Retail Banking
2
se consemneaz faptul
c mobilitatea clienilor i posibilitatea de a alege dintre diferite oferte de creditare sunt
eseniale pentru stimularea concurenei n sistemul bancar de retail. Totodat se precizeaz
c, n general, mobilitatea clienilor este sczut, iar relaiile client-banc sunt longevive ca
urmare a costurilor de transfer ridicate.
n ncercarea de a crete gradul de mobilitate a clienilor (i implicit nivelul de concuren
pe piaa creditelor de retail) Consiliul Concurenei a propus aplicarea prevederilor
Ordonanei referitoare la eliminarea/reducerea comisionului de rambursare anticipat i
altor tipuri de credite dect cele specificate de Directiv, precum i contractelor de
mprumut aflate n curs de derulare la momentul adoptrii actului normativ. Din analiza
practicilor bancare de pe teritoriul Romniei, a rezultat aspectul potrivit cruia consumatorii
care au ncheiat contracte nainte de intrarea n vigoare a Ordonanei ar fi rmas captivi n
contracte, multe dintre ele dezavantajoase lor, neputnd apela la refinanare din cauza
costurilor foarte ridicate impuse de creditori pentru rambursarea anticipat.
2 http://www.oecd.org/dataoecd/44/18/39753683.pdf.
21
2011
progressive development. The abovementioned alterations and limitations can have
consequences at their turn over the demand for goods and services, especially because
in the last years the types of credits available to and used by consumers have evolved
considerably, generating new credit tools.
As a result, the need to amend the existing Community provisions and to extend their
scope has arisen naturally. This has been subsequently concretised by Directive
2008/48/EC of the European Parliament and Council of 23 April 2008 concerning
consumer credit.
A very important element in achieving the objective proposed by the European Commission
is to increase the client mobility. In other words, in order to have the possibility to access
other more favourable credit offers (of a national or of a cross-border nature), the person
which has contracted a credit must have the real possibility to conclude the present credit
contract before de end of the agreed term/duration.
The client mobility level is influenced by many factors, among which the most important
are the following ones:
the costs related to the cessation of the contractual relations; the early
reimbursement fees and the related taxes owed by the debtor to the credit
institution have a high weight in these costs;
the existence of competitive offers from other banks, proposing consumers
more advantageous credit conditions;
the information asymmetry and its level of transparency these
characteristics influence directly the costs for finding the most favourable offer
to satisfy the needs of a consumer;
other administrative barriers (for example, the legal regulations).
The OECD Report Competition and Regulation in Retail Banking
2
mentions that client
mobility and the options to choose from different credit offers are essentials for stimulating
competition in the retail banking system. At the same time, the report stipulates that,
usually, the client mobility is reduced and that the client-bank relations are lengthy as a
result of the high transfer costs.
In order to increase client mobility (and implicitly the competition on the retail loan market),
the Competition Council has proposed for the application of the provisions of the Ordinance
concerning the elimination/reduction of the early reimbursement fee also to other types
of credits then those mentioned by the Directive, as well as to the credit contracts that were
on going at the moment the normative act was adopted. The analysis of the Romanian banking
practices has revealed that consumers which had concluded contracts before the date the
Ordinance entered into force would have remained captive to contracts, most of which
disadvantageous to them; they would have not been able to refinance their credits as a result
of the very high costs for the early reimbursement, that have been imposed by creditors.
2 http://www.oecd.org/dataoecd/44/18/39753683.pdf.
22
2011
n cazul achitrii creditului nainte de termenul stabilit prin contract, creditorul este ndreptit
la o compensaie echitabil i justificat n mod obiectiv pentru eventualele costuri legate
direct de rambursarea anticipat a creditului, cu condiia ca rambursarea anticipat s
intervin ntr-o perioad n care rata dobnzii aferente creditului este fix. Potrivit Ordonanei,
o astfel de compensaie nu poate fi mai mare de 1% din valoarea creditului rambursat
anticipat, dac perioada de timp dintre rambursarea anticipat i data convenit pentru
ncetarea contractului de credit este mai mare de un an, respectiv de 0,5% din valoarea
creditului rambursat anticipat, dac perioada de timp dintre rambursarea anticipat i data
convenit pentru ncetarea contractului de credit nu este mai mare de un an.
Prezentul studiu i propune o analiz sintetic a efectelor Ordonanei asupra consumatorilor
debitori, n special din perspectiva mobilitii consumatorilor. Evoluia activitii de refinanare
este att un rezultat al iniiativei consumatorilor, ct i al ncercrilor bncilor de a contracara
o posibil afectare a portofoliului de clieni proprii, ca urmare a migrrii acestora ctre
instituiile financiare concurente.
Pe lng efectul direct asupra evoluiei rambursrilor anticipate i a creditelor de refinanare,
eliminarea/reducerea comisionului de rambursare anticipat afecteaz n mod indirect i
activitatea de renegociere a contractelor clienilor (n sensul adresrii unor oferte individuale
mai avantajoase), precum i campaniile de refinanare derulate de ctre fiecare banc i
adresate att clienilor proprii ct i celor aparinnd competitorilor.
2. Analiza evoluiei numrului/volumului creditelor de refinanare
Ulterior lunii septembrie 2010 (dat pn la care trebuiau implementate de ctre bnci prevederile
Ordonanei), unul dintre principalii factori care a influenat evoluia numrului creditelor de
refinanare (deci a gradului de mobilitate a clienilor) l-a reprezentat valoarea taxelor i a
comisioanelor ce trebuiau pltite pentru rambursarea anticipat a contractului de credit. n aceast
perioad, cea mai important modificare n cadrul taxelor i comisioanelor pltite pentru achitarea
mprumuturilor, nainte de expirarea duratei pentru care au fost acordate, a reprezentat-o
eliminarea sau, dup caz, reducerea comisionului de rambursare anticipat. Aceast modificare
legislativ a influenat att n mod direct, ct i n mod indirect (prin apariia de oferte noi de
creditare cu condiii de plat mai avantajoase) gradul de mobilitate a clienilor bancari.
Pentru a surprinde efectele reducerii/eliminrii comisionului de rambursare anticipat, au
fost analizate creditele de refinanare acordate n perioada mai 2009 mai 2011. Creditele
n alte valute dect euro au fost convertite n euro.
23
2011
If a credit is reimbursed before the deadline set by the contract, the creditor is entitled to
receive an equitable compensation, justified objectively on the basis of the possible costs
directly related to the early reimbursement of the credit, under the condition that the early
reimbursement to be made when the interest rate of the credit is fixed. According to the
Ordinance, such a compensation cannot be higher than 1% of the early reimbursed credit,
if the time period between the early reimbursement and the initial deadline of the credit
contract is longer than one year, and of 0.5% of the early reimbursed credit, if the time
period between the early reimbursement and the initial deadline of the credit contract is
no longer than one year.
The present study tries to synthetically analyse the effects of the Ordinance over the
consumers as debtors, especially in respect to the client mobility. The evolution of the
refinancing activity has been generated by consumers initiative, as well as by the banks
attempts to overcome a possible alteration of their own client portfolios, as a result of their
migration to others competing financial institutions.
In addition to the direct effect over the evolution of the early reimbursements and over
the refinancing credits, the elimination/reduction of the early reimbursement fee also
affects indirectly the renegotiation of the clients contracts (meaning the possibility of
presenting more advantageous individual offers) as well as the refinancing campaigns
carried out by each bank and targeted at their own clients or at those of the
competitors.
2. Analysis of the evolution of the refinancing credits number/volume
After September 2010 (the deadline when the banks should have implemented the
provisions of the Ordinance), one of the main factors that has influenced the evolution
of the refinancing credits number (in other words, the client mobility) has been the value
of the early reimbursement fees and taxes. During this period of time, the most important
change of the early reimbursement taxes and fees has been the elimination/the reduction
of the early reimbursement fee. This legislative change has influenced directly and
indirectly (new credit offers with more advantageous payment condition) the inter-bank
client mobility.
For assessing the effects of the elimination/reduction of the early reimbursement fee, the
refinancing credits granted during May 2009 May 2001 have been analysed. The credits
in other foreign currencies than EUR have been converted in EUR.
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2011
Graficul nr. 1. Evoluia numrului creditelor de refinanare n lei
Sursa: Date primite din partea bncilor comerciale.
Astfel, aa cum este evideniat i n graficul de mai sus, n primele luni ale anului 2010,
se constat o cretere a numrului creditelor de refinanare comparativ cu anul anterior,
pentru ca n intervalul de timp imediat urmtor adoptrii Ordonanei (iunie 2010), s se
remarce o stagnare a numrului creditelor de refinanare. Acest fenomen poate fi explicat
prin prisma faptului c perioada cuprins ntre momentul adoptrii Ordonanei i momentul
promulgrii Legii de aprobare a acesteia (decembrie 2010) a fost caracterizat de dezbateri
intense, n care a predominat incertitudinea privind aprobarea i forma de aprobare a
Ordonanei. ncepnd cu luna martie a anului 2011, numrul creditelor de refinanare a
explodat comparativ cu perioada anterioar, ca urmare a noilor oferte de creditare din
partea bncilor.
Evoluia volumulului creditelor refinanate n lei indic un efect persistent datorat apariiei
Ordonanei, efect concretizat n dublarea volumului lunar de credite refinanate, dincolo de
eventualii factori sezonieri care influeneaz evoluia refinanrilor.
Spre deosebire de creditele n lei, creditele contractate n valut au avut o evoluie diferit.
Ulterior lunii iunie 2010 acestea au nregistrat o cretere, lunile cu un numr maxim de
refinanri a creditelor n valut fiind octombrie-noiembrie 2010. Ca i n cazul creditelor de
refinanare n lei, perioada martie mai 2011 se distinge printr-o medie lunar ridicat a
numrului creditelor de refinanare (de aproximativ trei ori mai mare dect media lunar
corespunztoare perioadei mai 2009 mai 2010).
25
2011
Graph no. 1. Evolution of the refinancing credits in RON
Source: Data received from the commercial banks.
The graph above highlights an increased number of refinancing credits during the first
months of 2010 compared to the previous year. After the adoption of the Ordinance
(June 2010), the number of refinancing credits has stagnated. This trend can be
explained by the fact that in the period between the adoption of the Ordinance and the
promulgation of the Law approving the Ordinance (December 2010) has been
characterised by intense debates, marked by the incertitude on the approval of the
Ordinance and on its final version. Starting with March 2011, the number of the
refinancing credits has exploded compared to the previous period, as a result of the
new credit offers presented by the banks.
The evolution of the volume of the refinancing credits granted in RON indicates a
persistent effect resulted from the adoption of the Ordinance, that has been concretised
in the monthly double increase of the refinancing credits, and which has not been the
consequence of the possible seasonal factors influencing the evolution of the refinancing
process.
Unlike the credits granted in RON, the ones in foreign currency have recorded a different
evolution. After June 2010, they have increased, the maximum growth being recorded in
October-November 2010. Like for the refinancing credits granted in RON, the period March-
May 2011 has recorded a high monthly average number of refinancing credits (approx.
three times higher than the monthly average of the period of May 2009 May 2010).
26
2011
Graficul nr. 2. Evoluia volumului creditelor de refinanare n lei
(exprimat n lei)

Graficul nr. 3. Evoluia numrului creditelor de refinanare n valut
27
2011
Graph no. 2. Evolution of the volume of the refinancing credits granted in RON
(expressed in RON)
Graph no. 3. Evolution of the number of the refinancing credits granted in foreign currency
28
2011
Volumul creditelor refinanate n valut a nregistrat o evoluie similar numrului de
credite acordate n valut. i aici se observ o modificare structural produs de apariia
Ordonanei care conduce n lunile octombrie noiembrie la un volum lunar al creditelor de
refinanare n valut de aproximativ 40 milioane euro. Acest volum este de aproape patru
ori mai mare dect n perioada corespunztoare din anul precedent.
Graficul nr. 4. Evoluia volumului creditelor de refinanare n valut
(exprimat n euro)

Din punct de vedere al clienilor care acceseaz creditele de refinanare, acestea pot fi privite
ca fiind credite de refinanare intern (clienii rmn n cadrul bncii) sau credite de
refinanare extern (clienii provin din cadrul altor bnci).
Privite din acest punct de vedere, evoluia numrului creditelor de refinaare este diferit n
perioada iunie 2010 decembrie 2010 (n aceast perioad numrul creditelor de refinanare
intern a nregistrat o uoar diminuare) i asemntoare ncepnd cu luna ianuarie 2011
(ulterior apariiei Legii 288 din 30 decembrie 2010 de aprobare a Ordonanei), atunci cnd
ambele categorii credite de refinanare au nregistrat o cretere spectaculoas.
29
2011
The volume of the refinancing credits granted in foreign currency has recorded similar
evolutions. In this case too, it can be noticed that a structural modification has been produced
by the adoption of the Ordinance, which has led to a monthly volume of the refinancing
credits granted in foreign currency of around EUR 40 million during October and November.
This volume is almost four times higher than the one of the similar previous year.
Graph no. 4. Evolution of the volume of the refinancing credits granted in foreign
currency (expressed in EUR)
From the viewpoint of the clients accessing refinancing credits, these credits are internal
refinancing credits (the clients remain customers of the same bank) or external refinancing
credits (the clients come from other banks).
From this point of view, the evolution of the number of the refinancing credits is different
during the period June December 2010 (in this period the number of the internal
refinancing credits has recorded a slight decrease) and is similar starting with January
2011 (after the adoption of Law no.288 of 30 December approving the Ordinance) when
both categories of refinancing credits have recorded a spectacular increase.
30
2011
Graficul nr. 5. Evoluia numrului creditelor de refinanare n lei
(refinanare intern vs. refinanare extern)
Faptul c numrul creditelor de refinanare extern s-a triplat n mai 2011 fa de valorile
nregistrate n 2009 2010 avnd o cretere mai semnificativ dect cea a creditelor de
refinanare intern, arat faptul c a crescut gradul de mobilitate a clienilor bancari,
obiectiv urmrit prin propunerea de extinderea sferei de aplicare a prevederilor privind
eliminarea/reducerea comisionului de rambursare cuprinse n Ordonan.
3. Analiza evoluiei rambursrilor anticipate pariale
Prevederea din Ordonan referitoare la eliminarea/reducerea comisionului de rambursare
anticipat s-a reflectat n mod direct la nivelul rambursrilor anticipate, prin creterea
numrului de pli efectuate n avans i reducerea costurilor aferente acestora.
n graficul de mai jos este prezentat evoluia rambursrilor anticipate pariale n perioada
cuprins ntre mai 2009 i mai 2010. S-a optat pentru o analiz doar a rambursrilor
anticipate pariale, ntruct datele referitoare la cele totale nu au putut fi cuantificate n mod
real, fie datorit includerii lor n cadrul raportrilor referitoare la creditele refinanate, fie din
cauza imposibilitii de a fi identificate n sistemele informatice ale bncilor.
31
2011
Graph no. 5. Evolution of the number of the refinancing credits granted in RON
(internal vs. external refinancing)
The fact that the number of external refinancing credits has tripled in May 2011 compared
to those in the period 2009-2010 and has a more significant growth than the number of
internal refinancing credits highlights that the inter-banking client mobility has
increased. This was, in fact, the objective followed by proposal of extending the provisions
on the elimination/reduction of the reimbursement fee of the Ordinance.
3. Analysis of the evolution of the partial early reimbursements
The provisions of the Ordinance on the elimination/reduction of the early reimbursement
fee have a direct impact over the early reimbursements, resulting in increased early
payments and in the reduction of the related costs.
The chart below presents the evolution of the partial early reimbursements during May
2009 - May 2010. The analysis has envisaged only the partial early reimbursements
because the data on the total early reimbursements couldnt have been quantified for the
reason that either they have been included in the reports on refinancing credits or they
have been impossible to identify in the banks IT systems.
32
2011
Din analiza datelor existente se poate observa c, dac la nivelul creditelor n lei, rambursate
anticipat pariale, nu se poate reine o modificare semnificativ a comportamentului clienilor
bancari, n ceea ce privete creditele n valut putem nota un trend ascendent att la nivelul
numrului ct i al volumului de rambursri anticipate, pariale. Aceast evoluie se poate datora
prevederilor Ordonanei, posibil coroborate cu influena altor factori, cum ar fi rata cursului de
schimb valutar. n orice caz, clienii ce au realizat astfel de pli au beneficiat de o reducere a
sumelor pltite, datorit eliminrii / reducerii comisionului de rambursare anticipat.
n perioada iunie 2010 mai 2011 s-a nregistrat un numr total de 229000 de rambursri
anticipate a creditelor acordate n lei i valut, iar volumul plilor anticipate a fost de 542,2
milioane lei, respectiv 261,9 milioane euro.
Graficul nr. 6. Evoluia numrului rambursrilor anticipate, pariale
33
2011
For the partial reimbursed credits in RON, the analysis of the available data reveals that
bank clients have not modified significantly their behaviour; the credits in foreign currency
have recorded an ascending trend as regards the number and the volume of the partial
early reimbursements. This evolution could be the result of the Ordinance, possibly
corroborated with the influence of other factors, such as the foreign currency exchange
rate. Anyway, the clients which have made such payments have benefited of a reduction
as a result of the elimination/reduction of the early reimbursement fee.
During June 2010 May 2011 248,800 early reimbursements of the credits granted in
RON and in foreign currency have been recorded, and the volume of the early payments
was of RON 524.2 million, respectively of EUR 261.9 million.
Graph no. 6. Evolution of the number of partial early reimbursements
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2011
Graficul nr. 7. Evoluia volumului rambursrilor anticipate, pariale
4. Analiza evoluiei raportului dintre creditele refinanate i creditele noi
Pe lng analiza evoluiei elementelor privind refinanrile, de o mare importan este i
analiza dinamicii refinanrilor raportate la creditele noi acordate. Pentru aceasta, am urmrit
evoluia acestui raport att n cadrul creditelor fr ipotec, ct i n cadrul creditelor cu
ipotec. Dinamica acestui raport prezint o cretere brusc n cadrul creditelor fr ipotec
(att pentru cele acordate n lei, ct i pentru cele acordate n valut).
Graficul nr. 8. Evoluia raportului refinanri/credite noi pentru creditele
fr ipotec
35
2011
Graph nr. 7. Evolution of the volume of partial early reimbursements
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Partial early reimbursements in RON Partial early reimbursements in foreign currency
4. Evolution analysis of the refinanced/new credits relation
In addition to refinancing evolution analysis, the assessment of the dynamics recorded by
the refinanced/new credits relation is of a great importance. For this reason, we have
analysed the evolution of this relation for the credits without mortgage and for those with
mortgage. The dynamics of this rapport presents a sudden increase for the credits without
mortgage (for the credits granted in RON as well as for those granted in foreign currency).
Graph no. 8. Evolution of the refinanced/new credits relation for the credits
without mortgage
36
2011
Graficul nr. 9. Evoluia raportului refinanri/credite noi pentru creditele cu ipotec
Aa cum am precizat i mai sus, analiza dinamicii raportului dintre numrul refinanrilor i
numrul creditelor noi acordate indic faptul c eliminarea/reducerea comisionului de
rambursare anticipat a influenat n principal creditele fr ipotec acordate persoanelor
fizice, n sensul creterii ponderii reprezentate de numrul refinanrilor n total credite noi
acordate. Aceast cretere a nceput n luna ianuarie 2011, adic ulterior apariiei Legii de
aprobare a Ordonanei.
Astfel, dac n luna iunie 2010 numrul refinanrilor fr ipotec n lei reprezenta 36,8%
din numrul creditelor n lei, fr ipotec, noi acordate, n luna aprilie 2011 ele reprezentau
72,8%. Similar, refinanrile fr ipotec, n valut, reprezentau n luna iunie 2010 un procent
de 28,7% din creditele fr ipotec, n valut, noi acordate, iar n luna martie 2011
reprezentau 44,5%.
5. Concluzii
Scopul urmrit prin introducerea n Ordonan a dispoziiilor referitoare la eliminarea sau, dup
caz, reducerea comisionului de rambursare anticipat la toate creditele destinate consumatorilor
persoane fizice a fost creterea corect a concurenei ntre bnci, ca urmare a creterii gradului
de mobilitate a clienilor. Un indicator important n constatarea realizrii acestui obiectiv s-a
concretizat n evoluia activitii de refinanare la nivelul sistemului bancar din Romnia.
Astfel, n perioada urmtoare apariiei Ordonanei (iunie 2010 mai 2011), numrul total
al creditelor refinanate s-a dublat comparativ cu perioada anterioar (iunie 2009 mai
2010). Astfel, n aceast perioad s-au acordat aprox. 160 mii de credite de refinanare,
37
2011
Graph no. 9. Evolution of the refinanced/new credits relation for mortgage credits
As stated above, the analysis of the dynamics of the relation between the number of the
refinanced credits and the one of the new credits points to the fact that the elimination/
reduction of the early reimbursement fee has mainly influenced the credits without
mortgage granted to the natural persons, resulting in an increase of the weight of the
refinanced credits in the total number of new credits. This trend has started in January
2011, after the adoption of the Law approving the Ordinance.
Therefore, if in June 2010 the number of the refinanced credits without mortgage was of
36.8% out of the number of credits granted in RON, in April 2011 they reached 72.8%.
Similarly, in June 2010 the refinanced credits without mortgage granted in foreign currency
were 28.7% out of the new credits without mortgage granted in foreign currency, and in
March 2011 they reached 44.5%.
5. Conclusions
The aim of introducing in the Ordinance the provisions concerning the elimination/reduction
of the early reimbursement fee for all consumer credits (natural persons) was to fairly
increase the competition between banks, as a result of the increased inter-bank client
mobility. An important marker for assessing the achievement of this objective was the
evolution of the refinancing activity in the Romanian banking system.
Consequently, after the adoption of the Ordinance (June 2010 May 2011), the total
number of the refinanced credits has doubled compared to the previous period (June
2009 May 2010). In this period, around 160,000 refinancing credits have been granted,
38
2011
comparativ cu 85,5 mii credite de refinanare acordate n perioada iunie 2009 mai 2010.
Prin urmare, cel puin 160 mii de clieni au beneficiat n mod direct de eliminarea/
reducerea comisionului de rambursare anticipat. Acestora li se adaug clienii care au
efectuat n aceast perioad rambursri anticipate ale creditelor, (229 mii clieni) sau
totale (altele dect refinanrile), precum i cei care i-au renegociat contractele n
condiii mai favorabile.
Volumul cumulat al creditelor de refinanare n lei n perioada iunie 2009 mai 2010 este
de 1.027 mil. lei, iar volumul cumulat al creditelor de refinanare n lei n perioada iunie
2010 mai 2011 este de 2.169 mil. lei. Pentru comparaie, volumul de credite n sold
acordate gospodriilor populaiei la nivelul lunii mai 2011 a fost de 35,402 mil. lei. Prin
urmare, n cele 12 luni urmtoare apariiei Ordonanei volumul total al creditelor de
refinanare n lei s-a dublat fa de perioada anterioar corespunztoare. n acelai
timp, acest volum reprezint 6% din volumul creditelor n sold acordate gospodriilor
populaiei.
Volumul creditelor refinanate n valut, n perioada iunie 2010 mai 2011, a fost de 338
mil. euro.
Considernd, n medie, o reducere cu 3 puncte procentuale a comisionului de rambursare anticipat
pltit de clienii bancari care i-au refinanat creditele, n perioada urmtoare apariiei Ordonanei,
prevederile art. 67 au condus la economii de aprox. 65 milioane lei i 10 milioane euro.
De asemenea, prevederile Ordonanei au influenat n mod direct un numr total de cca. 229 mii
de rambursri anticipate pariale ale creditelor acordate n lei i valut, iar volumul corespunztor
plilor efectuate anticipat a fost de 542,2 milioane lei, respectiv 261,9 milioane euro.
Totodat, considernd o reducere de 3 procente a comisionului de rambursare anticipat
clienilor bancari care au rambursat anticipat o parte din credit, n perioada urmtoare
apariiei Ordonanei, rezult economii de aprox. 16 milioane lei, respectiv 7,85 milioane euro.
Prin urmare, dispoziiile art. 67 din Ordonan au avut un impact semnificativ n sectorul
bancar, cu implicaii directe pentru mobilitatea clienilor i pentru nivelul concurenei din
sector. Aceast opinie a fost susinut i de majoritatea bncilor comerciale chestionate,
care au apreciat eliminarea comisionului de rambursare anticipat ca avnd un efect pozitiv
asupra mobilitii clienilor bncilor.
39
2011
compared to 85.5 thousands refinancing credits during June 2009 May 2010. As a result,
at least 160,000 clients have benefited directly of the elimination/reduction of the
early reimbursement fee. The clients which have early reimbursed their credits
partially (229,000 clients) or totally (other than the refinancing credits), have also
benefited from these conditions, together with those which have renegotiated their
contracts so as to benefit from more favourable conditions.
The cumulated volume of the refinancing credits granted in RON during June 2009 May
2010 is of RON 1,027 million, and the one granted during June 2010 May 2011 is of
RON 2,169 million. By comparison, the volume of consumer credits remaining to be
reimbursed at the moment May 2011 has been of RON 35.402 million. Consequently,
during 12 months after the adoption of the Ordinance, the total volume of the
refinancing credits has doubled compared to the corresponding previous period. At
the same time, this volume is 6% out of the volume of consumers credits remaining to be
reimbursed.
During June 2010 May 2011, the volume of the refinanced credits in foreign currency
has been of EUR 338 million.
Considering an average reduction of 3% to the early reimbursement fee paid by bank
clients in the period after the adoption of the Ordinance, putting into effect the provisions
of art. 67, it led to savings of approx. RON 65 million, respectively EUR 10 million.
Moreover, the provisions of the Ordinance have influenced directly around 229,000 early
reimbursements of the credits granted in RON and in foreign currency, and the volume of
the early reimbursements has been of RON 542.2 million and of EUR 261.9 million.
At the same time, by applying an average reduction of 3% to the early reimbursement fee paid
by the bank clients who have reimbursed part of their credits, it results that after the adoption
of the Ordinance savings of around RON 16 million and EUR 7.85 million have been generated.
As a result, the provisions of art.67 of the Ordinance have had a significant impact in the
banking system, with direct effects over the inter-bank client mobility and over the sector
competition. This was also the opinion of the majority of the interviewed banks, which have
stated that the elimination of the early reimbursement fee has had a positive impact over
the inter-bank client mobility.
40
2011
CONCURENA PE PIAA DISTRIBUIEI DE

MEDICAMENTE DIN ROMNIA
n Romnia, piaa medicamentelor a cunoscut o continu cretere, ajungnd n anul 2009
la o valoare de 8,1 mld. lei, de aproximativ patru ori mai mare fa de valoarea nregistrat
n anul 2000. Dei pe piaa romneasc activeaz un numr important de actori, tendina
acestei piee n ultimii ani a fost una de concentrare, primele 20 de companii controlnd
aproximativ 78% din pia. Aceast concentrare s-a datorat n principal operaiunilor de
fuziuni i achiziii realizate la nivel internaional, de companiile care activeaz pe piaa
farmaceutic.
Din punct de vedere al distribuiei de medicamente, n Romnia este utilizat n continuare
modelul tradiional de distribuie, n cadrul cruia productorii i distribuie produsele prin
intermediul unuia sau mai multor distribuitori, n baza unor contracte de distribuie sau a
unor condiii generale acceptate de distribuitori. Caracteristica principal a acestui sistem
const n transferul dreptului de proprietate asupra produselor la momentul n care acestea
sunt livrate de productor distribuitorului, acesta din urm fiind liber s i aleag clienii
i s i stabileasc preul de revnzare, n condiiile de reglementare existente, suportnd
n acelai timp toate riscurile comerciale i finaciare care deriv din aceste operaiuni.
Cuvinte cheie: distribuie, medicamente, concuren.
1. Introducere
Distribuia angro de medicamente din Romnia s-a aflat n atenia permanent a autoritii de
concuren. n vederea analizrii modului de funcionare a sistemului de distribuie practicat
n Romnia, dar i a modificrilor ce ar putea interveni n acest sistem pe termen scurt i mediu,
Consiliul Concurenei a derulat o investigaie sectorial n urma creia s-au constatat anumite
disfuncionaliti legate n primul rnd de accesul distribuitorilor la anumite medicamente.
Realizat pe un eantion de 23 grupuri farmaceutice ce activeaz pe piaa romneasc i
care deineau aproximativ 80% din valoarea pieei farmaceutice din Romnia n anul 2009,
investigaia sectorial a urmrit 2 obiective, respectiv:
analiza legislaiei cu impact asupra pieei distribuiei angro de medicamente;
analiza pieei distribuiei de medicamente.
41
2011
COMPETITION ON THE ROMANIAN DRUG
WHOLESALE MARKET
The Romanian drug market has had a continuous growth, reaching RON 8.1 billion in
2009, by around four times more than in 2000. Although there are an important
number of actors activating on the Romanian market, during the last years, the market
has tended to concentrate, the first 20 companies controlling for 78% of the market.
This concentration is mainly the consequence of the mergers and acquisitions carried
out at the international level by the companies activating on the pharmaceutical
market.
The traditional drug distribution system continues to be used In Romania - producers
are distributing their products through one or several distributors, based on
distribution contracts or on certain general conditions accepted by distributors. The
main feature of this system is the transfer of the property right over the products at
the moment the producer is delivering them to the distributor, the last one being free
to choose its clients and to set the resale price, taking into account the existing
regulations and supporting all the commercial and financial risks arising from this
operation.
Key words: distribution, drugs, competition
1. Overview
The drug wholesale distribution in Romania was under the permanent attention of the
competition authority. The Competition Council has carried out a sector inquiry focused on
analysing the functioning of the Romanian drug distribution system and on the possible
changes on the short and medium term. The sector inquiry has revealed certain dysfunctions
mainly related to the access of distributors to certain drugs.
The sector inquiry has been carried out based on a sample of 23 pharmaceutical groups
of companies having, in 2009, 80% of Romanias drug market. The two objectives of the
sector inquiry were:
to analyse the legislation with impact over the drug wholesale market;
to analyse the drug distribution market.
42
2011
n urma constatrilor cu privire la gradul ridicat de concentrare a pieelor analizate, datorat
cotelor importante de pia deinute de medicamentele inovative, n cadrul investigaiei au
fost analizate, de asemenea, gradul de penetrare a genericelor pe aceste piee i factorii
care au condus la aceast situaie.
2. Constatri privind cadrul legal cu impact asupra pieei distribuiei angro de
medicamente
2.1. Programele naionale de sntate
Obiectivul principal al unei politici de achiziii publice l reprezint promovarea eficienei,
respectiv atribuirea unui contract ofertantului care asigur cel mai bun pre sau, n termeni
mai generali, care determin obinerea celei mai bune valori a banilor.
Eficiena procesului de achiziie public nu depinde numai de tipul de procedur ales, ci i
de modul n care aceasta este elaborat i desfurat. Modul de elaborare a caracteristicilor
procesului competitiv poate avea, de asemenea, o influen puternic asupra eficienei
rezultatului.
Lipsa flexibilitii, datorate existenei unor reglementri stricte, limiteaz oportunitile autoritilor
contractante de a se adapta la situaiile existente i de a reaciona n mod corespunztor.
Nu exist o procedur de achiziie public care s fie potrivit n orice situaie i ca urmare,
oricare dintre procedurile disponibile autoritilor contractante poate reprezenta o modalitate
de organizare a programelor naionale de sanatate. n acest fel, se creaz cadrul de manifestare
a unui comportament concurenial ntre ofertani, dac sunt respectate anumite condiii.
n acest sens, Consiliul Concurenei a formulat recomandri pentru asigurarea unui nivel
optim de concuren pentru fiecare dintre procedurile disponibile autoritilor contractante,
respectiv:
licitaile naionale;
licitaiile judeene,
eliberarea medicamentelor prin farmacii cu circuit deschis sau
negocierea cu surs unic.
Licitaiile naionale
Avnd n vedere impactul major al procesului de licitaii asupra eficienei programelor
naionale de sntate, precum i asupra mediului concurenial, este esenial ca licitaiile s
se desfoare ntr-un cadru predefinit i structurat, n sensul c trebuie s existe un cadrul
legal clar care s precizeze:
criteriile de adjudecare a licitaiilor;
frecvena cu care acestea se desfoar;
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2011
Because of the high concentration of the analysed markets - a consequence of the
large market shares held by the innovative drugs - the analysis also focused on the
penetration level of the generic drugs and on the factors which have led to this
situation.
2. Conclusions on the legal framework with impact over the drug wholesale
market
2.1. National health programmes
The main objective of a public procurement policy is to promote efficiency - assigning the
contract to the bidder offering the best price within the procedure or, more generally, to
use the procedure providing the best value for money.
The efficiency of the public procurement process does not depend only on the type of the
public procurement procedure, but also on how it is projected and carried out. The setting
of the characteristics of the competitive process can also have a strong influence over the
efficiency of the result.
The lack of flexibility resulted from certain strict regulation are limiting the possibility
of the contracting authorities to adapt to the existing situations and to react accordingly.
Because there is no public procurement procedure fully suitable for all the possible
situations, any procedure available to the contracting authorities can represent an
organisation of the national health programmes creating the framework for the competitive
behaviour between bidders, under certain specific conditions.
In this respect, the Competition Council has formulated recommendations designed to
ensure an optimal level of competition for each of the procedures available to the
contracting authorities, namely:
national tenders;
county tenders,
drug distribution through open circuit pharmacies or
sole source negotiation.
National tenders
Taking into account the large impact of the tendering process over the efficiency of the
national health programmes, it is essential for the tenders to be carried out within a
predefined and structured framework, meaning that there must be a clear legal framework
providing:
the tender awarding criteria;
the frequency of the tenders;
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2011
obligaia de a face public rezultatul acestora;
autoritile competente n domeniu s asigure supravegherea efectiv a
ntregului proces de licitaie i s intervin ferm atunci cnd situaia o impune.
Pentru a obine rezultatele scontate este necesar ca licitaia s fie proiectat astfel nct s
se maximizeze participarea ofertanilor poteniali care concureaz n mod onest. Concurena
efectiv poate fi intensificat dac un numr suficient de ofertani credibili rspund invitaiei
de a participa la licitaie i doresc s concureze pentru contract.
De exemplu, participarea la licitaie poate fi facilitat dac:
persoanele responsabile cu achiziiile publice reduc costurile ofertrii;
stabilesc cerine de participare care nu limiteaz concurena n mod nejustificat;
permit companiilor din alte regiuni sau state s participe, ori concep modaliti
de impulsionare a companiilor mici de a participa chiar dac acestea nu pot
oferta pentru ntregul contract.
Dei legislaia n vigoare prevede n mod clar tipul de informaii pe care autoritile
contractante le pot solicita, att cu privire la situaia economic i financiar, precum i cu
privire la capacitatea tehnic i/sau profesional, n practic caietele de sarcini conin
condiii/solicitri care limiteaz n mod vdit concurenta.
Un alt element care trebuie avut n vedere pentru creterea eficienei programelor naionale
i asigurarea accesului pacienilor la medicamentele noi este desfurarea cu regularitate
a procedurilor de licitaie naional. Organizarea licitaiilor la intervale foarte mari de timp
conduce la:
blocarea intrrii pe pia a unor produse inovatoare care devin disponibile dup
atribuirea licitaiei i mpiedicarea accesului pacienilor la aceste medicamente;
amnarea intrrii pe pia a genericelor, n mod nejustificat;
reducerea sau eliminarea constrngerilor concureniale la care sunt expui
furnizorii existeni, putnd avea efecte negative asupra preurilor i/sau calitii
produselor.
Ca i n cazul licitaiilor naionale, este esenial ca licitaiile organizate de ctre spitale
s se desfoare ntr-un cadru predefinit i structurat. Eficiena procesului de achiziie public
depinde de mai multe elemente, printre care:
tipul de licitaie folosit (deschis, nchis, electronic);
modul n care licitaia este construit i desfurat;
elaborarea unor caracteristici precise ale procesului de ofertare competitiv;
promovarea sau nu a anunului de intenie i/sau de participare la licitaie sau
timpul alocat pentru depunerea ofertelor.
Cu toate acestea, nu exist o list exhaustiv a condiiilor ce trebuie ndeplinite pentru a
organiza o licitaie eficient. Nu exist un model de organizare care s se potriveasc perfect
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2011
the obligation to make public the results;
the competent authorities in the field must provide an effective surveillance of
the entire tendering process and to intervene firmly when it is needed.
In order to obtain the expected results, the tender must be projected so as to maximise
the participation of the potential fairly competing bidders. The effective competition can
be intensified if a sufficient number of credible bidders can respond to the tender invitation
in order to compete for the contract.
For example, tender participation can be facilitated if:
the persons responsible with public procurements reduce the costs related to
the presentation of the bids;
the conditions for attending a tender do not limit unjustifiably the competition;
the companies from other regions or countries are allowed to attend the tenders or if
small companies are encouraged to attend even if they cannot bid for the whole contract.
Although the legislation in force provides clearly the type of information that can be
requested by the contracting authorities, as regards the economic and financial situation,
as well as concerning the technical and/or professional capacity, in reality, the tender
specifications contain conditions/requests which obviously limit the competition.
The regular organisation of national tender procedures is another element that must be
taken into account for ensuring the efficiency of the national programmes and for
guaranteeing the access of patients to new drugs. If tenders are being organised at long
time intervals, this can lead to:
blocking the entering on the market of the innovative products that become available
after tenders assignment and obstruction of patients access to these drugs;
the unjustified postponement of generics market entry;
the reduction or the elimination of the competition constraints for the existing
suppliers, with possible negative effects over the prices and/or over the quality
of the products.
Like in the case of the national tenders, it is essential for the tenders organised by
hospitals to be carried out within a predefined and structured framework. The efficiency
of the public procurement depends on several elements, such as:
the type of the tender (opened, closed, electronic);
the manner how the tender is projected and carried out;
setting up precise characteristics of the competitive bidding process;
promoting or not the notice of intent and/or of participation to tenders or the
time deadline for presenting the bids.
However, there is no exhaustive list containing the necessary conditions for organising a
tender efficiently. There is no template for organising tenders that matches for all the types
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2011
fiecrui tip de licitaie, autoritile contractante trebuind s proiecteze licitaii n funcie de
situaia specific.
n general, pentru a reduce riscul ca agenii economici s se neleag n cadrul licitaiilor,
acestea trebuie trebuie proiectate i realizate astfel nct, s fie ndeplinite trei criterii majore
3
:
reducerea barierelor la intrare i creterea numrului de participani; atunci
cnd se stabilesc condiiile de participare n cadrul unei licitaii, procesul de
selecie n sine nu trebuie s mpiedice firmele s depun oferte prin
introducerea unor condiii care nu sunt relevante pentru achiziie, cum sunt
experiena similar sau situaia financiar, i/sau care s conduc la eliminarea
agenilor economici din alte zone geografice;
reducerea transparenei i a schimbului de informaii; un grad ridicat de
transparen n ceea ce privete tranzaciile de pia poate facilita ncheierea
de nelegeri anticoncureniale;
reducerea frecvenei procedurilor de achiziie; ncheierea de nelegeri
anticoncureniele este facilitat n cazul n care firmele concurente se ntlnesc
n mod frecvent n cadrul procedurilor de achiziie. Prin schimbarea mrimii i a
momentului n care sunt organizate licitaiile, autoritile contractante pot ncuraja
membrii cartelului s se nele ntre ei. Reducerea numrului situaiilor n care
firmele concurente se ntlnesc poate reduce oportunitile de sancionare a
membrilor cartelului i poate facilita concurena. Acest lucru se poate realiza, de
exemplu, prin organizarea unui numr mai mic de licitaii, dar pentru cantiti mai
mari de produse. Organizarea licitaiilor dup un anumit program prestabilit i
pentru aceleai cantiti de produse poate facilita schemele de ofertare prin rotaie.
Eliberarea medicamentelor prin farmaciile cu circuit deschis
Medicamentele eliberate prin farmaciile cu circuit deschis, aflate n relaie contractual cu casele de
asigurri de sntate, se deconteaz la nivelul preului de vnzare al acestora. ncepnd cu data de 8
aprilie 2009, preurile de decontare ale medicamentelor care se acord bolnavilor n cadrul programelor
naionale de sntate sunt preurile cu amnuntul maximale, calculate pe unitate terapeutic.
Mai mult, dei prescrierea medicamentelor n ambulatoriu se face utilizndu-se Denumirea Comun
International
4
(DCI), nu exist nicio prevedere conform creia farmaciile s fie obligate s elibereze
cel mai ieftin medicament n cadrul aceleiai DCI n cadrul acestui sistem, farmaciile pot elibera orice
medicament din cadrul unei DCI, fr s existe nicio restricie bugetar i, n plus, acestora li se
deconteaz preul maxim din Catalogul Naional al Preurilor Medicamentelor de Uz Uman (Canamed).
Prin urmare, dei eliberarea medicamentelor prin farmaciile cu circuit deschis permite
accesul tuturor actorilor de pe pia, acest sistem nu conduce la obinerea unor economii
la bugetul statului n urma manifestrii concurenei la nivel de productor, respectiv
distribuitor, acestea fiind reinute n ntregime de farmacii. Att timp ct reglementrile prevd
3 Intruciunile OECD privind lupta mpotriva licitaiilor trucate n cadrul achiziiilor publice.
4 Cu exceptia cazurilor justificate medical n fia medical a pacientului, cnd prescrierea se face pe denumire
comercial.
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2011
of tenders; the contracting authorities must project the tenders based on each specific
situation.
In general, in order to reduce the risk of collusion between tender bidders, the procedures
must be projected so as to meet three major criteria
3
:
to reduce the entry barriers and to increase the number of participants; when
establishing the conditions for attending a tender, the selection process must
not impede the firms to present their bids through introducing certain conditions
which are not relevant for the procurement, such as the similar experience or
the financial situation, and/or which lead to the elimination of the undertakings
from other geographic areas;
to reduce the transparency and the exchange of information; a high level of
transparency of the market transactions can facilitate the anticompetitive
agreements;
to reduce the frequency of the procurement procedures; the anticompetitive
agreements are facilitated when competing firms are meeting frequently
within tenders. By changing the size and the moment when tenders are
organised, the contracting authorities can encourage the members of the
cartel to cheat each other. The reduction of the number of opportunities for
competing firms to meet can reduce the opportunities to sanction the members
of the cartel and can facilitate the competition. This can be achieved, for
example, by organising a small number of tenders, but for larger quantities of
products. The organisation of the tenders after a pre-established program and
for the same quantities can facilitate bid rotation schemes.
The supply of drugs through open circuit pharmacies
For the drugs supplied through open circuit pharmacies, which have a contractual relation
with the health insurance houses, the reimbursement price is the selling price. Starting
with April 8 2009, reimbursement price of drugs granted to patients within national health
insurance programmes are the maximum retail prices calculated on therapeutic unit.
Moreover, although the ambulatory drug prescription is based on the International Common
Name (ICN)
4
, there is no provision requesting pharmacies to release the cheapest drug
within the same ICN. Within this system, pharmacies can release any drug from an ICN,
without any budgetary restriction and, in addition, the settlement is done at the maximum
price provided by the National Catalogue of the Prices of Drugs for Human Use (Canamed).
Therefore, although the release of drugs through open circuit pharmacies allow the
access for all the market players, this system does not generate savings at state budget
as a result of the existing competition between producers and distributors, because they are
being retained entirely by pharmacies. So long as regulations provide that the reimbursement
3 OECDs Guidelines for fighting bid rigging in public procurement.
4 With the exception of the cases justified in the medical chart of the patient, when the prescription is made based on the
commercial name.
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2011
posibilitatea decontrii medicamentelor la preul maxim, nu exist nicio motivaie pentru
farmacii s solicite decontarea la un pre mai mic dect preul din Canamed.
Pentru creterea eficienei utilizrii fondurilor alocate pentru tratamentul bolnavilor cuprini
n cadrul programelor naionale i asigurarea accesului pacienilor la medicamente, ar trebui
introdus un sistem care s permit manifestarea concurenei prin pre cel puin n
situaiile n care exist mai multe medicamente cu aceeai DCI sau n cazul medicamentelor
pentru care exist mai multe forme de ambalare, unele dintre acestea fiind foarte costisitoare.
Negocierea cu surs unic
Este posibil ca organizarea unei anumite forme de licitaie s nu fie cea mai eficient metod
pentru a obine rezultatele scontate, ci organizarea unei negocieri cu surs unic. Aceast
situaie este posibil n cazul medicamentelor inovative care se acord n cadrul programelor
naionale, pentru care nu exist medicamente substituibile i care au preuri de vnzare de
peste 300 lei. ntruct adaosul maxim de distribuie pentru aceste medicamente nu permite
obinerea unor discounturi importante, corespunztoare volumelor achiziionate, nu se
justific organizarea unei proceduri de licitaie, att timp ct discountul oferit de productorul
unic poate fi semnificativ mai mare.
n situaia n care autoritile contractante doresc s recurg la aceast procedur trebuie
s se asigure c pot obine avantajul scontat i c produsele sunt unice, neexistnd alte
produse substituibile pe pia.
n plus, avnd n vedere c, prin utilizarea negocierii cu surs unic cu productorii, se
elimin concurena intra-marc, este absolut necesar ca productorii n cauz s aleag
distribuitorul/distribuitorii care vor asigura livrarea medicamentelor pe baza unor criterii clare
i transparente, acordnd oricrui distribuitor anse egale pentru a fi selectat.
Lista cuprinznd denumirile comune internationale corespunztoare
medicamentelor de care beneficiaz asiguraii, cu sau fr contribuie
personal, pe baz de prescripie medical, n sistemul de asigurri
sociale de sntate
n urma analizrii cadrului naional de reglementare n vigoare, au fost identificate
3 probleme principale:
criteriile n baza crora medicamentele sunt introduse ntr-una din cele trei
subliste A, B i C;
termenul de includere efectiv n List a DCI-ului i compensarea ulterioar a
acesteia;
cile de atac disponibile agenilor economici n cazul unei decizii negative din
partea Ministerului Sntii.
n ceea ce privete legislaia naional care reglementeaz criteriile generale de includere,
neincludere sau excludere n List, exist un consens general la nivelul industriei farmaceutice
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2011
of drugs can be done at the maximum price, the pharmacies will have no motivation to
request for the reimbursement to be done at a lower price than the one from Canamed.
In order to increase the efficiency of the funds allocated for the patients included in the
national programmes and for ensuring the access of the patients to drugs, a system
should be introduced allowing price competition at least in the situations when several
drugs have the same ICN or when drugs have multiple packing forms, some of them being
very expensive.
Sole source negotiation
Sometimes, using a certain type of tender might not be the most efficient manner for
achieving the expected results. In these cases, the contracting authorities have the
alternative of using the sole source negotiation. This kind of solution is possible for the
innovative drugs supplied within the national programmes for which there are no
substituents and which have selling prices over RON 300. Because the maximum trade
mark-up for the distribution of these drugs does not allow distributors to obtain important
discounts generated by the volumes acquired, the organisation of a tender procedure is
not justified, so long as the discount offered by the sole producer can be significantly larger.
When the contracting authorities choose this procedure, they must be sure they will obtain
the expected advantage and that the products are unique, without any substituents on the
market.
Moreover, since the sole source negotiation with the producers eliminates the intra-
brand competition, the producers involved in the procedure must choose the distributor/
distributors delivering the drugs based on clear and transparent criteria and they must give
equal selection chances for all the distributors.
The list of the international common names of the drugs used by
the patients having a health insurance, with or without a personal
contribution, based on medical prescription, within the health
insurance system
The main 3 issues were identified following the analysis of the national legal
framework:
the criteria used for the inclusion of the drugs in one of the three sub-lists A,
B and C;
the effective time deadline for including an ICN on the List and its subsequent
compensation;
the ways available for undertakings to challenge a negative decision of the
Ministry of Health.
In respect to the national legislation in force, which regulates the general criteria for
including, nonincluding or excluding an ICN on/from the List, the pharmaceutical industry
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2011
cu privire la faptul c acestea sunt transparente i nediscriminatorii. Cu toate acestea,
legislaia n vigoare, respectiv HG nr. 720/2008, nu prevede criteriile n baza crora
medicamentele care ndeplinesc criteriile generale de includere n List sunt introduse ntr-
una din cele trei subliste. Ca urmare, nu exist transparent cu privire la procesul de stabilire
a gradului de compensare de care poate beneficia un anumit medicament.
n lipsa unor criterii transparente n baza carora se ia decizia de includere ntr-o anume
sublist, agenii economici nu pot aprecia n ce masur un medicament este fi apt
pentru a fi inclus ntr-o sublist. Mai mult dect att, ei nu pot verifica ulterior dac
decizia Ministerului Sntii respect sau nu aceste criterii. Implicit, exist anse
reduse de reuit n cazul contestrii deciziei.
Prin urmare, pentru a asigura respectarea prevederilor art. 6 din Directiva 89/105/CEE, este
necesar ca Ministerul Sntii s fac publice criteriile folosite la stabilirea celor trei
subliste i a gradului de compensare a medicamentelor incluse n acestea. Criteriile trebuie
incluse n legislaia relevant pentru a crea certitudinea legal, a asigura transparena
necesar i a nltura posibilitatea unei aplicri discriminatorii.
Referitor la termenul legal de emitere a deciziilor cu privire la includerea unei DCI pe List,
exist un consens general la nivelul industriei farmaceutice privind respectarea acestui
termen. Cu toate acestea, respectarea termenului de 90 de zile nu este esenial n raport
de includerea efectiv n List a DCI-ului i compensarea ulterioar a acesteia. Compensarea
efectiv a unei DCI noi se face de la data publicrii n Monitorul Oficial a Hotrrii de Guvern
prin care se aprob Lista, i nu de la data primirii deciziei de includere de la Ministerul
Sntii.
Pentru a asigura respectarea deplin a principiilor consacrate de art. 6 al Directivei 89/105/
CEE, o soluie ar fi compensarea automat a unui medicament dup emiterea de ctre
minister a unei decizii favorabile de includere n List. De asemenea, pentru creterea
gradului de transparen a ntregului proces de includere a unei DCI pe List, Ministerul
Sntii ar putea s publice pe site-ul instituiei att deciziile individuale de includere n
List, ct i proiectul de List, n conformitate cu legislaia n vigoare n domeniul transparenei
decizionale.
Referitor la cile de atac disponibile agenilor economici n cazul unei decizii negative din
partea ministerului de resort, legislaia n vigoare prevede posibilitatea depunerii unei
contestaii la secretariatul Comisiei naionale de transparen, n termen de zece zile de la
primirea deciziei. Comisia naional de transparen este un organism n cadrul ministerului,
fr putere de decizie, aceasta avnd doar rolul de a aviza propunerile comisiilor de
specialitate i de a le transmite spre aprobare ministrului sntii. Legislaia nu prevede cu
claritate organismul competent sa analizeze contestaia, ci doar faptul ca aceasta se depune
la secretariatul Comisiei. n condiiile n care analiza contestaiei se face tot de ctre Comisia
naional de transparen, se poate concluziona, prin prisma jurisprudenei CEJ, c legislaia
naional nu prevede ci de atac de natura a asigura o protecie juridica veritabil agenilor
economici interesai, n sensul art. 6 al Directivei.
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2011
has a general consensus that they are transparent and non-discriminatory. However, the
legislation in force, namely Government Decision no.720/2008, does not specify the criteria
for including in the three sub-lists the drugs meeting the general List inclusion conditions.
As a result, there is no transparency in the process of establishing the compensation level
of certain drug.
Because the criteria for including a drug in a certain sub-list is not transparent,
undertakings cannot evaluate if a drug is able to be included in a sub-list, as well
as to verify subsequently the decision of the Ministry of Health, in respect to its
compliance with these criteria. Implicitly, the chances of succeeding in challenging
the decision are very small.
Consequently, for ensuring the compliance with art.6 of Directive 89/105/EEC, the Ministry
of Health must make public the criteria used for establishing the three sub-lists and for
setting the compensation level for the drugs included in these sub-lists. The Ministry of Health
must include the criteria into the relevant legislation in order to create legal certainty, to ensure
the necessary transparency and to remove the possibility of applying the criteria discriminatorily.
The pharmaceutical industry has a general consensus as regards the compliance with the
legal time deadline for issuing decisions on the inclusion of an ICN on the List. However,
the compliance with the 90 days deadline is not essential as regards the effective inclusion
of the ICN on the List, as well as in respect to its subsequent compensation. The effective
compensation of a new ICN is made at the date when the Government Decision approving
the list is published in the Official Gazette of Romania and not at the date the inclusion
decision of the Ministry of Health is received.
For this situation to fully comply with the principles provided by art.6 of Directive 89/105/
EEC, a solution would be the automatic compensation of a drug after the Ministry
issues a favourable decision concerning its inclusion on the List. At the same time, for
increasing the transparency of the entire process of including an ICN on the List, the
Ministry of Health could publish on the institutions website the individual decisions for
including an ICN on the List, as well as the draft of the List, in conformity with the legislation
in force in the field of decisional transparency.
As regards the ways available for undertakings to challenge a negative decision of the Ministry,
the legislation in force provides the possibility of submitting a complaint at the secretariat of
the National Commission of Transparency, in ten days from receiving the decision. The National
Commission of Transparency is a body within the Ministry, without decisional power, which gives
its opinion on the proposals of the commissions of specialty and which transmits these opinions
to be approved by the Minister of Health. The legislation does not provide clearly which body is
competent to analyse the complaint; it only stipulates that the complaint can be submitted to
the secretariat of the Commission. If the National Commission of Transparency is the one
analyzing a complaint, the conclusion is that, based on the European Court of Justices
jurisprudence, the national legislation does not provide ways of challenge able to ensure a real
judicial protection for the interested undertakings, in the sense of art.6 of the Directive.
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2011
Ca urmare, pentru a asigura respectarea prevederilor art. 6 al Directivei 89/105/CEE, este
necesar legiferarea unor ci de atac n sensul celor prevzute de Directiv i
consacrate de jurisprudena comunitar, respectiv acordarea prerogativelor de analiz i
soluionare a contestaiilor mpotriva deciziilor nefavorabile ale ministerului cu privire la
includerea unei DCI n List, unui organism independent cu funcii judiciare.
2.2. Achiziia medicamentelor de care beneficiaz asiguraii n tratamentul
spitalicesc
Consiliul Concurenei a analizat comportamentul spitalelor cu privire la trei aspecte ce in
de organizarea procedurilor de atribuire a contractelor de achiziie public, i care pot
influena n mod decisiv posibilitatea de manifestare a concurenei n cadrul procesului de
atribuire a unui contract, i anume:
solicitarea de ctre autoritatea contractant a autorizaiei de dealer;
organizarea procedurilor pe caiet de sarcini vs. organizarea procedurilor pe
loturi de produse;
organizarea procedurilor pe DCI vs. organizarea procedurilor pe denumire
comercial.
Autorizaia de dealer
Cu toate c legislaia existent n materia achiziiilor publice prevede n mod clar tipurile de
informaii i documente pe care o autoritate contractant le poate solicita ofertanilor pentru
a demonstra ndeplinirea criteriilor de calificare i selecie, precum i documentele care
probeaz ndeplinirea unor astfel de cerine, n practic o mare parte din spitalele din Romnia
solicit ofertanilor prezentarea unei autorizaii din partea productorului prin care acesta din
urm autorizeaz un distribuitor s livreze produsele sale n cadrul unei anumite licitaii.
Un prim motiv pentru care solicit aceast autorizaie, invocat de un numr important de spitale,
l reprezint garantarea derulrii contractului n condiii bune, respectiv asigurarea unei
livrri ritmice a medicamentelor care au fcut obiectul licitaiei. n general, spitalele organizeaz
licitaii pentru un necesar de medicamente pentru o perioad mai mare de timp, de regul un
an. n plus, exist un numr de spitale care consider c solicitarea acestei autorizri este
necesar pentru c garanteaz susinerea din partea productorului, avnd astfel certitudinea
c productorul asigur furnizorului cantitile de medicamente ctigate n urma licitaiilor.
Motivele prezentate de spitalele care solicit autorizaia de dealer nu justific poteniala afectare
a concurenei pe care ar putea-o genera aceasta. Consiliul Concurenei consider c autorizaia
de dealer este de fapt o barier artificial deoarece las la dispoziia unui productor
posibilitatea de a alege care din distribuitorii si s participe cu ofert n licitaie.
n ceea ce privete motivele pentru care se solicit aceast autorizaie, Consiliul
Concurenei consider c autoritile contractante pot verifica calitatea i originea
produselor oferite de un anumit distribuitor pe baza altor documentelor solicitate prin
documentaia de licitaie, i anume certificate de garanie i calitate emise de

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Thus, for ensuring the compliance with the provisions of art.6 of Directive 89/105/EEC, it
is necessary to regulate certain ways of challenge - in the sense of the Directive and
as it was confirmed by the Community jurisprudence - namely to empower an independent
judiciary body to analyse and decide on the complaints concerning the unfavourable
decisions of the Ministry regarding the inclusion of a ICN on the List.
2.2. Procurement of the drugs for the patients treated in hospitals and who have a
health insurance
The Competition Council has analysed the behaviour of the hospitals in respect to the
following three aspects relating to the organisation of the public procurement contract
assigning procedures and which can influence decisively the competition within the process
of awarding a contract:
the request of the contracting authority for bidders to present a dealer authorisation;
the organisation of the procedures based on specifications vs. the organisation
of the procedures based on plots of products;
the organisation of the procedures based on the ICN vs. the organisation of the
procedures based on the commercial name.
The dealer authorisation
Although the existing legislation in the field of public procurement provides clearly the
type of information and documents that can be requested by a contracting authority to
demonstrate the fulfilment of the qualification and selection criteria, as well as the
related documents, in reality, many Romanian hospitals request bidders to present an
authorisation issued by the drug producer certifying that the last one authorises a
distributor to deliver its products within a tender.
A first reason for requesting this authorisation, invoked by an important number of
hospitals, is that for guarantying the proper running of the contract, namely providing
a rhythmical delivery of the drugs which have been the object of the tender. In general,
hospitals are organising tenders for the drugs needed for a longer period of time, usually,
annually. Moreover, certain hospitals consider this authorisation necessary for the
producer to guaranty to the distributor that it will provide the drug quantities resulted
following the award of the tender organised by the hospital.
The reasons presented by the hospitals which request dealer authorisations do not justify
the potential subsequent distortion of the competition. The Competition Council considers
that dealer authorisations are, in fact, artificial barriers because they give to the
producer the possibility of choosing which of its distributors will bid in a tender.
As regards the reasons for which this authorisation is requested, the Competition Council
considers that the contracting authorities can verify the quality and the origin of the products
offered by a certain distributor based on the documents requested through the tender
documentation, namely the guarantee and quality certificates issued by producers, the market

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2011
productori, autorizaii de punere pe pia emise de ANMDM, precum i certificate de
nregistrare emise de MS. De asemenea, pentru a se asigura c distribuitorii vor
respecta clauzele contractuale i vor asigura livrarea medicamentelor n cantitile i
la termenele solicitate, autoritile contractante au la ndemn un alt instrument, i
anume garania de bun execuie. Scopul acestui instrument este tocmai garantarea
desfurrii contractului n condiiile stabilite, existnd totodat i posibilitatea
penalizrii distribuitorilor care nu i ndeplinesc obligaiile asumate.
Prin urmare, autoritie organizatoare i/sau contractante trebuie s renune la
solicitarea autorizaiei de dealer, document care nu este conform cu prevederile
OUG nr.34/2006, i folosirea intrumentelor prevzute de reglementare cu acelai
scop, respectiv garania de participare i garania de buna execuie.
Loturi vs caiet de sarcini
Spitalele pot solicita agenilor economici s prezinte fie o ofert pentru ntregul caiet de
sarcini, fie pentru unul sau mai multe loturi de produse prevzute n caietul de sarcini.
Ambele variante respect legislaia n domeniul achiziiilor publice i prezint att avantaje,
ct i dezavantaje din punct de vedere concurenial. Avantajele solicitrii unei oferte pentru
ntregul caiet de sarcini rezult din economiile de scop ce pot fi obinute de un distribuitor
prin adjudecarea integral a contractului, ntruct acesta poate acorda un discount
semnificativ. Cu toate acestea, exist posibilitatea ca un numr redus de ofertani s
distribuie toate produsele i s poat oferta ntregul caiet de sarcini. n acest caz,
concurena este limitat din cauza participrii unui numr mic de distribuitori ce pot
depune o ofert. n plus, este foarte posibil ca accesul distribuitorilor mici, care distribuie
un numr mai mic de produse, s fie restricionat. Dei ambele variante pot avea avantaje
din punct de vedere concurenial, avnd n vedere faptul c, n general, spitalele
organizeaz proceduri de achiziie public pentru tot necesarul aferent unei anumite
perioade, n general de 12 luni, este puin probabil s existe un numr suficient de
distribuitori care s poat oferta ntregul caiet de sarcini. Prin urmare, pentru a asigura
un nivel de concuren corespunztor ofertarea pe loturi poate fi mai adecvat,
permind totodat i accesul actorilor mai mici din pia.
DCI vs Denumire comercial
Conform legislaiei n vigoare, este interzis definirea n caietul de sarcini a unor specificaii
tehnice care indic o anumit origine, surs, producie, un procedeu special sau o marc de
fabric sau de comer. Cu toate acestea, datorit caracteristicilor specifice domeniului sanitar,
exist spitale care organizeaz proceduri de achiziie public n cadrul crora se precizeaz
denumirea comercial a medicamentelor ce se doresc a fi achiziionate. Totui, avnd n
vedere particularitile domeniului farmaceutic, n ceea ce privete dezvoltarea continu de
produse noi, dar i necesitatea de a asigura continuitate n tratamentul pacienilor, Consiliul
Concurenei consider c specificaiile tehnice pot face referire la denumirea comercial
numai n acele cazuri n care pentru produsele respective nu exist produse substituibile i,
prin urmare, prin precizarea denumirii comerciale nu se nltur concurena.
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2011
authorisations issued by National Drug and Medical Equipment Agency, as well as the
certificates issued by the Ministry of Health. At the same time, for ensuring that distributors
will respect the contractual clauses and that will deliver the drugs in the quantities and at
the time deadlines requested, the contracting authorities have at their disposal another
instrument, namely the good execution guarantee. The very aim of this instrument is to
guarantee the running of the contract according to the pre-set conditions. At the same time,
the distributors which do not fulfil their assumed obligations can be penalised.
As a result, the organising and/or contracting authorities must renounce at requesting dealer
authorisations, which are documents contrary to the provision of the Government Emergency
Ordinance no.34/2006, and must make use of the instruments with the same purpose -
provided by the normative act -, namely the participation and the good execution guarantees.
Lots vs. specifications
The hospitals options of requesting undertakings to present a bid for the entire
specifications or for one or more lots of products provided for by the specifications
are complying with the legislation in the field of public procurement and present
advantages, as well as disadvantages for the competition. The advantages of
organising a bid for the entire specifications result from the scope economies that
can be obtained by a distributor through the fully award of the contract, because it
can offer a significant discount. However, it is possible that only a small number of
bidders distribute all the products and bid for all the specifications. In this case, the
competition is limited because of the small number of distributers that can present
a bid. Moreover, it is very possible that the access of the small distributors, delivering
a smaller number of products, to be restricted. Although both options can create
competitive advantages - because, usually, hospitals organise tenders for covering
the necessary stock for a long period of time, in general of 12 months -, it is less
probable for a sufficient number of distributors to be able to bid for the entire
technical specifications. As a result, for ensuring a proper level of competition,
lot bidding can be a more adequate solution, because, among others, ensures
the access of the smaller market actors.
ICN vs. Commercial name
The legislation in force forbids for the specifications to contain technical characteristics
indicating a certain origin, source, production, special process or a production brad or
trade mark. Still, as a result of the features specific to the sanitary field, certain hospitals
organise public tender procedures mentioning the commercial name of the drugs
planned to be acquired. However, taking into consideration the particularities of the
pharmaceutical field as regards the continuous development of new products and the
necessity of providing the continuous treatment of patients, the Competition Council
considers that the technical specifications can refer to the commercial name only in the
cases when the involved products have no substituents and, consequently, the
competition is not removed as a result of mentioning the competition name.
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2011
Prin urmare, n conformitate cu prevederile existente n domeniul achiziiilor publice, spitalele
ar trebui s defineasc specificaiile tehnice cel mult la nivel de DCI, care corespunde
nivelului ATC 5. Avnd n vedere modul de definire a pieei relevante n sectorul
farmaceutic, Consiliul Concurenei consider c, pentru a asigura un nivel optim al
concurenei, n anumite situaii, specificaiile tehnice ar putea fi definite la un nivel
inferior, respectiv la nivelul ATC4.
3. Constatri privind situaia concurenial pe piaa distribuiei angro de
medicamente
3.1. Distribuia angro de medicamente
Pentru realizarea unei analize reprezentative pentru piaa distribuiei angro de medicamente,
Consiliul Concurenei a pornit de la clasamentul celor mai bine vndute 50 de medicamente
din Romnia, medicamente care acoper aproximativ 40% din piaa romneasc,
medicamente pe care orice distribuitor dorete s le aib n portofoliu pentru a putea fi competitiv
pe pia. Prin urmare, pentru realizarea obiectivelor propuse, au fost identificate 92 de piee la
nivelul ATC 4, a cror valoare a reprezentat 70% din valoarea total a pieei totale n anul 2009.
n urma analizrii modului n care distribuitorii au acces la medicamentelele existente n
cadrul celor 92 de piee identificate la nivel ATC 4, dar i la fiecare cel mai bine vndut
medicament din cadrul fiecrei piee relevante identificate
5
s-a constatat c, n general, nu
exist probleme semnificative pe piaa distribuiei angro de medicamente. Astfel, n
mai mult de 55% din cazuri distribuia este realizat de un numr de peste 10 distribuitori,
n timp ce n doar 9,50% din cazuri este distribuit de un numr mai mic de 5 distribuitori.
n ceea ce privete pieele identificate, n urma analizei efectuate, a rezultat faptul c, la
nivel de ansamblu, acordurile de distribuie exclusiv nu acoper o parte semnificativ de
pia. Astfel, n anul 2009, valoarea vnzrilor de medicamente distribuite n baza unor relaii
de exclusivitate a reprezentat aprox. 8,75% din valoarea total a celor 92 de piee analizate
de Consiliul Concurenei. Din cele 78 de relaii de exclusivitate identificate, doar n cazul a
11, ponderea relaiilor de exclusivitate n piaa total depete nivelul de 30%, n timp ce
n cazul a 49 relaii de exlusivitate ponderea este sub 1%.
Cele mai multe relaii de exclusivitate se regsesc n clasa L
6
, respectiv 34, urmat de clasa
J
7
, cu 12 relaii de exclusivitate, i clasa N
8
, cu 9 relaii de exclusivitate. Mai mult, cea mai
mare parte a relaiilor de exclusivitate, respectiv 48 din cele 78 identificate, reprezint mai
puin de 1% din valoarea total a pieei din care fac parte, fiind conjuncturale, datorate
vnzrilor sporadice ale unor medicamente.
5 n situaia n care pe o piaa relevant identificat exist mai mult de 1 medicament din Top 50, a fost analizat distribuia
fiecrui medicament prezent n Top, astfel nct, n final au fost analizate 107 medicamente.
6 Antineoplazice i imunomodulatoare;
7 Antiinfecioase de uz sistemic;
8 Sistem nervos.
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2011
As a result, according to the provisions in the field of public procurement, hospitals should
define the technical specifications maximum at the ICN level, corresponding to the ATC 5 level
(Anatomical Therapeutic Chemical Classification System). Taking into account the manner
of defining the relevant market in the pharmaceutical sector, the Competition Council
considers that, in order to provide an optimum level of competition, in certain cases,
the technical specifications should be defined at a lower level, namely at the ATC 4 level.
3. Conclusions regarding the competition on the drug wholesale distribution
market
3.1. The wholesale of drugs
In order to deliver a representative analysis of the drug wholesale market, the Competition
Council started from the top of the 50 best sold drugs in Romania, drugs covering around
40% of the Romanian market and which distributors want to include into their portfolio
so as to be more competitive on the market. As a result, for achieving the envisaged
objectives, 92 ATC 4 markets have been identified, accounting for 70% of the total 2009
market.
Following the analysis on how distributors have access to the drugs existing on the 92 ATC
4 markets and on the best sold drugs from these relevant identified markets
5
, it was
concluded that, in general, there are no significant problems on the drug wholesale
market. Thus, in more than 55% of the cases, the distribution is carried out by more than
10 distributors, while in only 9.50% of the cases the distribution is made by less than 5
distributors.
As regards the identified markets, following the analysis it was concluded that, as a total,
the exclusive distribution agreements do not cover a significant part of the market.
Therefore, in 2009, the value of the drug sales distributed through exclusive relations has
represented around 8.75% of the total value of the 92 markets analysed by the Competition
Council. Out of the 78 exclusive relations identified, only in 11 cases the weight of the
exclusive relations in the total market overcome the 30% level, while the weight registered
in 49 exclusive relations is under 1%.
Most of the exclusive relations are included in the L class
6
, namely 34, followed by the J
class
7
, with 12 exclusive relations, and by the N class
8
, with 9 exclusive relations. Moreover,
the largest part of the exclusive relations, namely 48 of the 78 exclusive relations, represent
less than 1% of the total market value they belong to, because there have a conjectural
nature, as a result of the sporadic sales of certain drugs.
5 When on a relevant market there is more than 1 drus from Top 50, the distribution of each drug from the Top has been
analysed, meaning that, in total, 107 drugs have been analysed.
6 Antineoplastic and immune-modulatory drugs;
7 Anti-infective drugs for systemic use;
8 Nerve system.
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2011
Peste pragul de 30% al cotei de pia nu se poate presupune c acordurile verticale, care intr sub
incidena articolului 5 alineatul (1) din lege i a articolului 101 alineatul (1) din TFUE, vor da natere
n general unor avantaje obiective de o asemenea natur i dimensiune nct s compenseze
prejudiciile pe care le creeaz concurenei. Prin urmare, n cazul situaiilor mai sus identificate n
care productorii recurg la sisteme de distribuie exclusiv, dei cotele deinute pe pia depesc
pragul de 30%, este necesar ca acetia s i fac o autoevaluare pentru a stabili dac acordurile
ncheiate ndeplinesc condiiile prevzute la articolul 5 (2) din lege, respectiv articolul 101 (3) din
TFUE, conducnd la o real cretere a eficienei care contracareaz reducerea concurenei intramarc.
n concluzie, accesul pe piaa distribuiei angro nu este limitat ntr-o msur semnificativ
de existena unor relaii de exclusivitate sau de distribuia printr-un numr redus de
distributori. Cu toate acestea, n cadrul investigaiei au fost identificate anumite piee
pe care accesul distribuitorilor i, n general, al distribuitorilor mici, este dificil.
3.2. Inovative versus generice
n urma analizei efectuate, a rezultat faptul c, datorit comercializrii cu precdere a unor
medicamente inovative, exist un grad ridicat de concentrare a anumitor piee. Astfel,
din cele 36 piee n cadrul crora se regsesc medicamentele din Top 50:
29 de piee conin medicamente inovative;
3 conin att medicamente inovative, ct i medicamente generice;
4 conin medicamente generice.
Medicamentele generice sunt medicamente echivalente cu cele originale n momentul expirrii
brevetului i a perioadei de exclusivitate a datelor pentru produsul inovator care exist deja.
Medicamentele generice ofer oportunitatea de a obine tratamente similare la costuri mai mici
pentru pacieni i pltitori, elibernd totodat bugete pentru finanarea de noi medicamente inovatoare.
Concentrarea pieelor analizate poate avea dou cauze, i anume:
existena unor drepturi de proprietate intelectual care mpiedic intrarea
medicamentelor generice pe pia i
medicamentele generice nu au putut eroda cota de pia a medicamentului
inovativ, dei acestea au ptruns pe pia.
n urma analizei, au fost identificate trei situaii diferite cu privire la poziia medicamentelor
generice pe aceste piee, i anume:
medicamentele generice sunt nregistrate i comercializate, dar acestea nu
au aceeai substan activ cu medicamentul inovativ cel mai bine vndut;
medicamentele generice ale celui mai bine vndut medicament inovativ sunt
nregistrate i comercializate, dar gradul de penetrare a pieei este redus;
medicamentele generice ale celui mai bine vndut medicament inovativ au
fost autorizate abia n anul 2009 i, prin urmare, nu aveau cum s ctige o
parte important de pia.
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2011
Over the 30% market share threshold, it cannot be presumed that, in general, the vertical
agreements falling under the incidence of art.5(1) of the Law, and of art.101(1) of TFEU will
generate objective advantages of a such nature and dimension so as to compensate the
subsequent competition harms. As a result, in the abovementioned cases when producers are
using exclusive distribution systems although the market shares overcome the 30% threshold,
they must make a self-assessment in order to establish if the concluded agreements are
complying with the provisions of art.5(2) of the Law and of art.101(3) of TFEU, thus generating
a real increase of the efficiency countervailing the reduction of the intra-brand competition.
In conclusion, the access on the drug wholesale market is not significantly limited by
the exclusive relations or by the distribution carried out by a small number of
distributors. However, certain markets, where the access of the distributors and, in
general, of the small ones is difficult, were identified following the investigation.
3.2. Innovative drugs vs. generic drugs
Following the analysis it was concluded that certain markets have a high level of
concentration, mainly as a result of the commercialisation of certain innovative drugs. As
a result, out of the 36 markets including the drugs from Top 50:
29 markets contain innovative drugs;
3 contain innovative and generic drugs;
4 contain generic drugs.
Generic drugs are drugs equivalent to the original ones at the moment the patent and the
exclusivity periods for the existing innovative drug expire. Generic drugs offer the
opportunity of similar treatments at smaller costs for patients and for payers, relieving the
budgets for financing new innovative drugs.
The concentration of the analysed markets can have two causes, namely:
certain intellectual property rights impeding the market entry of the generics
and
the generics were not able to erode the market share of the innovative drug,
although they have entered on the market.
As regards the market position of the generic drugs, three different situations have been
identified, namely:
when generic drugs are registered and traded, but they do not have the same
active substance with the best sold innovative drug;
when the generic drugs of the best sold innovative drug are registered and
traded, but their market penetration is reduced;
when the generic drugs of the best sold innovative drug have been authorised
only in 2009 and, as a consequence, they could not have won an important
part of the market.
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2011
Pentru pieele pe care exist medicamentele generice cu aceeai substan activ ca i
medicamentul inovativ i care au fost comercializate n anul 2009, a fost analizat diferena
de pre existent ntre medicamentul inovativ i cel mai ieftin medicament generic cu aceeai
substan activ, precum i ponderea celor dou medicamente n total pia.
Din analiza efectuat a rezultat faptul c, dei exist diferene semnificative de pre, de
pn la 253%, cu excepia unei singure piee (C01EB), pe toate pieele unde exist
variante generice ale medicamentelor inovative cel mai bine vndute, nu numai c
medicamentele generice nu au reuit s penetreze piaa, dar vnzrile celor mai ieftine
medicamente generice reprezint sub 1% din valoarea total a pieei. Chiar i n situaia
particular a genericelor care au reuit s ctige o parte important din pia, din analiz
a rezultat c preul acestora este mai mare dect preul altor generice cu aceeai substan
activ. i n aceste situaii, medicamentele generice mai ieftine, cu aceeai substan activ,
realizeaz vnzri marginale, care nu depesc 1% din valoarea pieei totale.
Factorii care afecteaz ptrunderea medicamentelor generice pe pia sau obinerea de ctre
acestea a unor cote semnificative de pia in de:
cadrul de reglementare n vigoare,
promovarea intens a medicamentelor inovative,
nivelul de concurena existent ntre medicamentele inovatice i generice
determinat de comportamentul companiilor productoare
n privina cadrului de reglementare, n anul 2009, reglementrile n vigoare prevedeau
prescrierea medicamentelor de care beneficiaz asiguraii n cadrul sistemului de asigurri
de sntate pe denumire comercial, i nu pe DCI, ceea ce nseamn c medicii erau cei
care determinau cererea, i prin urmare, structura pieelor analizate. Chiar i n cazul
medicamentelor compensate, pentru care pacienii trebuiau s plteasc diferena dintre
preul de vnzare cu amnuntul i suma corespunztoare aplicrii procentului de compensare
asupra preului de referin, reglementrile nu prevedeau reguli pentru farmaciti, care s
stimuleze eliberarea de generice.
Pentru a facilita i impulsiona consumul de medicamente generice, cadrul de reglementare din
Romnia a fost modificat n anul 2010. Astfel, n cazul medicamentelor compensate, medicii
au fost obligai s prescrie medicamentele pe DCI i nu pe denumire comercial ca n anul
2009, iar farmacitii au fost obligai s elibereze medicamentul care d preul de referint.
n ceea ce privete, ns, medicamentele decontate ce se acord n cadrul programelor naionale
de sntate, att n anul 2009, ct i n prezent, prescrierea acestora se face pe DCI. Cu toate
acestea, CNAS suport valoarea integral a preului de vnzare cu amnuntul al fiecrui
medicament care se acord n cadrul programelor naionale de sntate. ntruct pacienii nu
suport nicio parte din costul acestor medicamente, acetia nu au niciun interes s solicite
eliberarea unor medicamente generice sau chiar a unor medicamente inovative substituibile, dar
mai ieftine. De asemenea, ntruct statul suport preul maxim cu amnuntul pentru aceste
medicamente, farmaciile nu au niciun stimulent pentru a le comercializa la un pre mai
mic, dei acestea pot obine discounturi semnificative de la distribuitorii de medicamente.
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2011
For the markets where the generic drugs with the same active substance as the innovative
one have been traded only in 2009, the analysis has envisaged the price difference between
the innovative drug and cheapest generic with the same active substance, as well and the
weight of the two drugs.
The analysis has showed that, although there are significant price differences, of up
to 253%, exempting a single market (C01EB), on all the markets were the best sold
innovative drugs have generic variants, generics did not succeed to penetrate the
market and, the sales of the cheapest generics have represented less than 1% of the
total market value. Even in the particular situation of the generics which have succeed
to get an important part of the market, the analysis has showed that their price is higher
than the price of other generics with the same active substance. In these cases too, the
cheaper drugs with the same active substance have marginal sales under 1% of the total
market value.
The factors affecting the market entry of the generics or their acquirement of significant
market shares are related to:
the regulatory framework in force,
the intense promoting of the innovative drugs,
the competition between the innovative and generic drugs resulted from the
behaviour of the producing companies.
In respect to the regulatory framework, in 2009, the regulations in force provided that the
prescription of the drugs used for the treatment of the patients included in the health
insurance system were based on the commercial name, and not on the ICN, meaning that
doctors were creating the demand, and consequently, the structure of the analysed market.
Even for the compensated drugs, for which the patients have to pay the difference between
the retail price and the sum resulted from applying the compensation percentage over the
reference price, the regulations did not provided rules for stimulating pharmacists to sell
generics.
For facilitating and motivating the consumption of generics, the Romanian regulatory
framework has been changed in 2010. Thus, for compensated drugs, physicians were
required to prescribe the drugs based on their ICN, and not on their commercial name
like in 2009, and pharmacists were required to sell the drug which gives the reference
price.
On the other hand, in respect to the settled drugs within the Romanian national health
programmes, in 2009, as well as at present, their prescription is made based on their ICN.
However, the National Health Insurance House settles the entire value of the retail price for
each drug granted within the national health programmes. Because patients do not pay any
part of the cost of these drugs, they have no motivation to request generic or cheaper
substitutable innovative drugs. Moreover, because the State is paying the entire maximum
retail price for these drugs, pharmacies have no stimulation to trade them at a lower
price, although they could obtain significant discounts from drug distributors.
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2011
Prin urmare, prin practicarea acestui sistem, se elimin principala form de concuren cu
privire la aceste medicamente, i anume concurena prin pre, att la nivelul productorilor,
ct i la nivelul farmaciilor, n detrimentul bugetului alocat programelor naionale i, n final, al
pacienilor. Avnd n vedere creterea cheltuielilor cu medicamentele care se acord n cadrul
programelor naionale de sntate, este necesar introducerea unui sistem de refereniere
a preurilor n cazul acestor medicamente, cel puin n cazurile n care exist mai multe
medicamente cu aceeai DCI. Introducerea acestor msuri va conduce, pe de o parte, la
reducerea cheltuielilor statului cu aceste medicamente i, pe de alt parte la promovarea
medicamentelor generice pe msur ce acestea intr pe pia.
Un al doilea factor care poate influena raportul inovative/generice se regsete n Raportul
CE n cazul investigaiei sectoriale pe piaa farmaceutic, i anume promovarea intens a
produselor realizat de companiile inovatoare. Conform Comisiei Europene, societile
inovatoare aloc o parte semnificativ a bugetelor lor pentru comercializarea produselor prin
intermediul medicilor i al altor cadre specializate n domeniul asistenei medicale. La nivel
naional, Legea nr. 95/2006, privind reforma n domeniul sntii, cu modificrile i
complettile ulterioare, reglementeaz diferite forme n care se poate realiza publicitatea
pentru medicamente. Acest act normativ preia principiile prevzute n Directiva 2001/83/CE
a Parlamentului European i a Consiliului din 6 noiembrie 2001, de instituire a unui cod
comunitar cu privire la medicamentele de uz uman.
Pentru a evita influenarea prescrierii de ctre medici a anumitor medicamente n detrimentul
altora n funcie de cadourile primite de la companiile productoare, prin Decizia nr.
43/27.09.2010, Consiliul Concurenei a recomandat Ministerului Sntii elaborarea, n
legislaia secundar, a unor Norme care s defineasc sintagmele cadouri, avantaje n bani
sau n natur care au o valoare simbolica si care nu sunt costisitoare, prevzute la art.
797 alin.(1) i 805 alin.(1) din Legea nr.95/2006 privind reforma n domeniul sntii.
Referitor la cel de-al treilea factor care poate contribui la ntrzierea intrrii medicamentelor
generice pe pia, i anume concurena dintre societile inovatoare i cele generice, acesta
reprezint o precupare special att a Comisiei Europene, ct i a autoritilor de concuren
din statele membre, deci implicit a Consiliului Concurenei.
Eventuala utilizare necorespunztoare a drepturilor de proprietate intelectual de ctre
societile inovatoare pentru a ntrzia intrarea pe pia a medicamentelor generice poate
face obiectul controlului concurenei, dac aceast utilizare are un caracter anticoncurenial,
ceea ce poate constitui o nclcare n temeiul art. 101 sau 102 din TFUE, respectiv al art. 5
sau 6 din Legea concurenei. De asemenea, acordurile care urmresc s mpiedice intrarea
pe pia a concurenilor pot constitui nclcri ale dreptului comunitar i naional al concurenei.
Acordurile amiabile care limiteaz intrarea pe pia a medicamentelor generice i includ un
transfer de valori de la o societate inovatoare ctre o societate generic sau ctre mai multe
astfel de societi, sunt un exemplu de acorduri care pot avea un caracter anticoncurenial,
n special n cazul n care motivul care st la baza ncheierii lor este mprirea profitului prin
intermediul plilor de la societile inovatoare ctre cele generice, n detrimentul pacienilor
i al bugetelor alocate sntii publice.
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2011
As a result, by applying this system, the main form of competition, the price
competition between producers and between pharmacies, is being eliminated in
the detriment of the budget allocated for the national programmes and, finally, of
patients. Taking into consideration the increase of the drug expenses granted within
the national health programmes it is necessary to introduce a reference price
system in respect to these drugs, at least for the cases when there are several
drugs with the same ICN. Such measures will generate the decrease of States
expenses with these drugs and the promoting of generics as they are entering on the
market.
A second factor influencing the relation between the innovative and the generic drugs is
included in the EC Report on the pharmaceutical sector inquiry, namely the intense
promoting of the products carried out by the innovating companies. According to the
European Commission, the innovative companies are allocating a significant part of their
budgets for trading the products through physicians and other personnel specialized in the
field of health assistance. At the national level, Law no.95/2006 concerning the reform in
the health field, with the subsequent amendments and completions regulates different form
for publicising these drugs. This normative act transposes the principles of Directive
2001/83/EC of the European Parliament and of the Council of 6 November 2001 on the
Community code relating to medicinal products for human use.
In order to avoid physicians being influenced so as to prescript certain drugs in the detriment
of others as a result of the gifts received from the producing companies, through Decision
no.43/27.09.2010, the Competition Council has recommended to the Ministry of Health to draft
a specific secondary legislation, namely the Norms defining the terms of gifts, money-advantages
and benefits in kind of a symbolic value and which are not expensive, terms stipulated by
art.97(1) and art. 805(1) of Law no.95/2006 concerning the reform in the health field.
The third factor which can contribute to delaying the generics market entry, namely the
competition between the innovative and the generic companies, represents a special
preoccupation of the European Commission, as well as of the competition authorities of
the EU Member States, and implicitly of the Competition Council.
If innovative companies are to possibly misuse the intellectual property rights in order to
postpone the market entry of generics, this could be scrutinised by the competition
authorities with the condition that this misuse has an anticompetitive nature, possible
constituting an infringement of art.101 or 102 of TFEU, and of art.5 or 6 of the Competition
Law. Moreover, the agreements having the object of impeding the market entry of
competitors can represent infringements of the national and Community competition law.
Mutual agreements which are limiting the generics market entry and which include
transfers of value from an innovative company to one or several generic companies are
an example of agreements of an anticompetitive nature, especially when the reason for
concluding them is to share the portfolio through payments made by the innovative to the
generic companies, in the detriment of the patients and of the budgets allocated to the
public health.
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2011
4. Concluzii
Avnd n vedere creterea important nregistrat n cazul cheltuielilor cu medicamentele
decontate, Consiliul Concurenei a recomandat introducerea unui sistem de refereniere a
preurilor, cel puin n cazurile n care exist mai multe medicamente cu aceeai DCI.
Introducerea acestui sistem va conduce la reducerea cheltuielilor cu medicamentele,
stimularea concurenei prin pre de la nivel de productor pn la nivel de farmacie i, n
final, la practicarea unor preuri mai mici. Propunerea Consiliului Concurenei a fost preluat
de Ministerul Sntii i inclus n Ordinul nr. 1275/2011.
Ministerul Sntii a propus ca modul de calcul al preurilor de decontare a medicamentelor
care se acord bolnavilor cuprini n cadrul programelor naionale de sntate nominalizate
prin hotrre de guvern, n condiiile legii, s fie stabilit ntr-un mod care s permit realizarea
de economii la bugetul alocat sntii. Astfel, preul cu ridicata ar fi fost preul de productor
diminuat cu 15%, la care urma s se adauge adaosul de distribuie.
Consiliul Concurenei a atras atenia asupra faptului c aceast metod de calcul ar putea
avea ca efect creterea atractivitii exporturilor de astfel de medicamente. Prin urmare,
msura ar putea conduce la nregistrarea unui deficit de medicamente pe piaa romneasc,
cu posibile consecine asupra strii de sntate a bolnavilor cronici inclui n programe
naionale de sntate.
De asemenea, din punctul de vedere al impactului asupra disponibilitii medicamentelor,
scderea cu 15% a preului de productor ar putea influena strategiile comerciale ale
productorilor, n sensul de a diminua/renuna la comercializarea medicamentelor al cror
pre sczut determin marje diminuate de profit.
Consiliul Concurenei a recomandat ca o soluie alternativ a reducerii cu 15% a preului de
productor aplicarea acestei reduceri la preul pe care CNAS l ramburseaz asigurailor.
Sensibilitatea distribuiei de medicamente i efectele acesteia n pia conduc la acordarea
i pe viitor a unei atenii deosebite acestui subiect, pentru a elimina posibilitatea de
manifestare a unor poteniale practici anticoncureniale.
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2011
4. Conclusions
Taking into consideration the important increase of the expenses related to drug settlement,
the Competition Council has recommended the introduction of a price reference system,
at least in the cases when there are several drugs with the same ICN.
The introduction of such a system will lead to the reduction of the drug expenses, to the
stimulation of the price competition - from the level of producers up to the one of the
pharmacies and, finally, to smaller prices. The proposal of the Competition Council has
been accepted by the Ministry of Health and included in Order no.1275/2011.
The Ministry of Health has proposed that the calculation of the settlement price for the
drugs intended for the patients treated within the national health programmes stipulated
by Government Decision, according to the law, to be established so as to generate savings
for the health budget. Thus, the retail price would have been the producer price diminished
by 15%, following to be completed by the distribution mark-up.
The Competition Council has signalled that this calculation method could have as effect
the increase of the exports of such drugs. As a result, the measure could lead to a drug
deficit on the Romanian market, with possible consequences over the health condition of
the chronically ill patients included in the national health programs.
Moreover, as regards the impact of the availability of the drugs, the decrease of the
producer price by 15% could influence the commercial strategies of the producers, namely
that they would diminish/renounce at commercialising the drugs whose low prices generate
reduced profit rates.
The Competition Council has recommended the alternative solution of applying the 15%
reduction on the price reimbursed by the National Health Insurance House to the patients
having a health insurance.
The sensitivity of drug distribution and its effects on the market are the reasons for
continuing the surveillance of this market, in order to eliminate the possible anticompetitive
practices.
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2011
ACHIZIIILE PUBLICE DIN ROMNIA NTRE NIVELURILE

PIEEI I NEVOIA DE ECONOMIE BUGETAR
Sistemul achiziiilor publice a dobndit n ultimii ani o importan crescut, att la nivel
naional, ct i internaional. Procurarea de bunuri i servicii prin intermediul sistemului
achiziiilor publice poate avea drept efect realizarea de economii bugetare, ce pot fi canalizate
spre alte necesiti ale economiei naionale. Un element esenial n sistemul achiziiilor
publice l reprezint preul, al crui nivel influeneaz cheltuielile autoritilor contractante
pentru procurarea de bunuri, servicii i lucrri. Ultimele date publicate de Eurostat plaseaz
Romnia n anul 2009 pe locul 8 din cele 27 de state membre, valoare anunurilor de achiziii
publicate n Jurnalul Oficial al Uniunii Europene situndu-se la 6,5% din PIB.
La nivel naional, achiziiile publice sunt n permanen n vizorul autoritii de
concuren din perspectiva reglementrilor din domeniul concurenei. n afara
investigaiilor derulate n acest domeniu i al colaborrii cu celelalte autoriti cu
atribuii n sfera achiziiilor publice, anul acesta Consiliul Concurenei a efectuat o
analiz comparativa privind nivelul preurilor din cadrul contractelor cu diferite
autoriti contractante i al celor practicate pentru ali clieni pentru un numr de
patru produse, respectiv: motorin euro 5, ulei, cartofi i hrtie xerox. Obiectivul
acestei cercetri a fost acela de a stabili dac preurile produselor livrate autoritilor
contractante prin diferite proceduri de licitaie au fost mai mici dect cele facturate
altor clieni neguvernamentali.
Analiza achiziilor publice pentru cele 4 produse a pus n eviden faptul c, n
general, prin licitaiile online preurile contractelor ncheiate cu diferite autoriti i
i nsti tui i publ i ce sunt mai reduse fa de preuri l e facturate al tor cl i eni
neguvernamentali. n cazul celorlalte proceduri de achiziii publice, preurile produselor
livrate autoritilor contractante depete constant preurile facturate altor clieni
neguvernamentali, cu procente care variaz de la un produs la altul i de la un tip de
procedur de achiziie la alta.
Cuvinte cheie: achiziie public, autoritate contractant, pre.
1. Introducere
Sistemul achiziiilor publice i modul de formare a preurilor produselor, serviciilor i lucrrilor
licitate sunt din ce n ce mai des aduse n discuia public, genernd dezbateri legate fie de
transparen, fie de trucare sau de preul cu care se adjudec contractele de achiziii publice.
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2011
PUBLIC PROCUREMENTS IN ROMANIA BETWEEN MARKETS
DIMENSION AND THE NEED FOR BUDGETARY SAVINGS
During the last years, the public procurement system has acquired an increasing
importance both at national and international level. The acquisition of goods and services
through the public procurement system can generate budgetary savings that can be
channelled towards other needs of the national economy. Price is an essential element
of the public procurement system, and its level is influencing the expenses of the
contracting authorities made for acquiring goods, services and works. The latest data
published by Eurostat rank Romania in 2009 on the 8th place out of the 27 EU Member
States, the value of the public procurement notices being of 6.5% of the GDP.
At the national level, public procurements are under the permanent assessment of the
competition authority as regards the compliance with the competition regulations. The
Competition Council is currently undertaking several investigations in this field and it is
cooperating with the other authorities with competences in public procurements. Furthermore,
this year, the Competition Council has undertaken a comparative analysis between the prices
resulted from the contracts concluded by different contracting authorities and the ones
charged to other clients. The analysis has envisaged four products, namely: Euro 5 diesel,
cooking oil, potatoes and copy paper. The aim of this research has been to establish if the
prices of the products delivered to the contracting authorities through different tender
procedures were lower than the ones charged to other nongovernmental clients.
The analysis of the public procurements for the four products has highlighted that, in
general, the use of the online tenders generates lower prices for the contracts concluded
by different public authorities and institutions compared to the one charged to other
nongovernmental clients. As regards the other types of public procurement procedures, the
prices for the products delivered to the contracting authorities overcome constantly the
prices charged to other nongovernmental clients, by different percentages depending on
the product and the tender procedure involved.
Key words: public procurement, contracting authority, price.
1. Overview
The public procurement system and the price formation of the tendered products,
services and works are increasingly brought into the public discussion, generating
debates related to their transparency, the possible bid rigging or the awarding prices.
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2011
La nivel comunitar, exist o multitudine de studii legate de problematica achiziiilor publice,
ce merg de la explicarea diferitelor mecanisme de funcionare, modaliti de trucare, pn
la prezentarea unor cazuri specifice acestui sistem.
Achiziiile publice pot ridica, printre altele, probleme legate de existena unor prevederi cu
potenial caracter anticoncurenial existente n cadrul legislativ sau de fenomenul trucrii
licitaiilor de ctre agenii economici participani la licitaie.
Alturi de aceste elemente, preul joac un rol primordial n licitaiile publice, fiind unul din
elementele ce pot concura n realizarea unor economii bugetare. Stabilirea valorii estimate
a produselor, lucrrilor i serviciilor licitate ct mai aproape de preul acelorai produse de
pe pia trebuie s reprezinte elementul de baz al oricrui contract de achiziie public.
Pornind de la aceste considerente, vom ncerca s surprindem pe parcursul acestui material,
dup o scurt analiz comparativ Romnia cu celelalte state membre ale Uniunii Europene,
cteva aspecte legate de nivelul preului aferent contractelor ncheiate n urma licitaiilor
pentru 4 produse (motorin, ulei de gtit, cartofi i hrtie xerox) fa de preul acestora
practicat n afara sistemului de achiziii publice.
2. Unde se afl Romnia n privina achiziiilor publice dup momentul aderrii
la Uniunea European?
Comparativ cu celelalte state membre, n perioada 2007-2009, Romnia a nregistrat o diminuare a
valorii estimate a contractelor din anunurile de achiziii publice, regsite n Jurnalul Oficial al Uniunii
Europene
9
, cu 0,8 puncte procentuale, respectiv de la 7,3% din PIB (2007) la 6,5% din PIB (2009), n
timp ce media european a marcat o cretere cu 0,6 de puncte procentuale n aceeai perioad. Din
cele 27 de state membre, n 5 state s-au nregistrat scderi ale ponderii achiziiilor publice n PIB,
variind ntre -0,4 puncte procentuale (Slovenia) i -3,8 puncte procentuale n Letonia. (Tabelul nr.1).
9 Conform legislaiei n vigoare, publicarea anunurilor de achiziii n JO al UE este obligatorie atunci cnd:
a) valoarea estimat a contractului de furnizare sau de servicii care urmeaz s fie atribuit este egal ori mai mare dect
echivalentul n lei a 125 000 euro;
b) autoritatea contractant face parte dintr-unul din sectoarele de utilitate public (ap, energie, transport i pot), iar valoarea
estimat a contractului de furnizare ori de servicii care urmeaz s fie atribuit este egal sau mai mare dect echivalentul n
lei a 387 000 de euro;
c) valoarea estimat a contractului de lucrri care urmeaz s fie atribuit este egal sau mai mare dect echivalentul n lei a
4 845 000 de euro.
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2011
Several studies on public procurements have been drafted at the Community level,
explaining the different functioning mechanisms of the system, the forms of bid rigging,
and specific case studies.
Public procurements may present, among others, issues related to the existence of certain
possible anticompetitive provisions stipulated by the legal framework or may be affected
by the phenomena of bid rigging carried out by the bidding undertakings.
Additionally, the price plays a critical role within public tenders, and it is one of the elements
which can help in achieving budgetary savings. Establishing the estimated value of the
bided products, works and services closer as possible to the market price must be the
basic element of a public procurement contract.
Starting from these considerations and after performing a short Romania - other EU
Member State comparative analysis, we shall try to present certain aspects regarding the
price of the contracts concluded following the tendering procedures for procuring 4
products (diesel, cooking oil, potatoes and copy paper) compared to the price of these
products outside the public procurement system.
2. What is Romanias situation in the field of public procurement after the
EU accession?
According to the public procurement notices published in the Official Journal of the European
Union, during 2007-2009, Romania has recorded an estimated value of the contracts
9
diminished
by 0.8 percentage points, namely from 7.3% of the GDP (2007) to 6.5% of the GDP (2009). In
the same period of time, the European average has increased by 0.6 percentage points. In five
of the 27 EU Member States, the weight of the public procurements in the GDP has decreased
by between -0.4 percentage points (Slovenia) and -3.8 percentage points in Latvia. (Table no.1).
9 According to the legislation in force, the publication of the public procurement notices in the EU OJ is compulsory when:
a) the estimated value of the supplying or services contract following to be awarded is equal or overcomes the equivalent in
RON of EUR 125 000;
b) the contracting authority is activating in one of the public utility sectors (water, energy, transport and postal services),
and the estimated value of the services contract following to be awarded is equal or overcomes the equivalent in RON of
EUR 387 000;
c) the estimated value of the contract of works following to be awarded is equal or overcomes the equivalent in RON of
EUR 4 845 000.
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2011
Tabelul nr. 1. Evoluia ponderii valorii anunurilor de achiziii publice n PIB n
perioada 2007-2009 n statele membre ale Uniunii Europene (%)
2007 2008 2009 2009-2007 (puncte procentuale)
Austria 1.7 2.4 2.3 0.6
Belgia 3.2 3.6 4 0.8
Bulgaria 8.5 8.7 12.2 3.7
Cehia 4.1 5.3 5.2 1.1
Cipru 5.1 4.7 8.3 3.2
Danemarca 3.2 3 4 0.8
Estonia 7.2 8.2 8.4 1.2
Finlanda 3.6 4 4.9 1.3
Frana 3.4 3.7 3.8 0.4
Germania 1.1 1.2 1.4 0.3
Grecia 3.5 2.8 3.7 0.2
Irlanda 3.4 2.5 2.2 -1.2
Italia 2.3 2.3 2.5 0.2
Letonia 12.4 9.6 8.6 -3.8
Lituania 4.2 3.6 4.9 0.7
Luxemburg 1.2 1.3 1.5 0.3
Malta 2 1.2 6.9 4.9
Marea Britanie 4 4.4 6.2 2.2
Olanda 1.8 1.9 2 0.2
Polonia 5.8 7.2 8.2 2.4
Portugalia 1.7 2.5 3.4 1.7
Romnia 7.3 7.4 6.5 -0.8
Slovacia 3.6 3.7 6.8 3.2
Slovenia 6.5 5.1 6.1 -0.4
Spania 4.1 3.6 3.4 -0.7
Suedia 3 3.5 4.2 1.2
UE-27 3 3.1 3.6 0.6
Ungaria 4.5 5.2 6.3 1.8
Sursa: Comisia European, Direcia General Pia Intern, 2010.
n privina valorii estimate a cheltuielilor cu bunuri, lucrri i servicii licitate, n anul 2009,
pe ansamblul UE-27, aceasta se situeaz la 2288,44 mld.euro, n cretere cu 9,41 procente
fa de anul 2007. Din aceast perspectiv, Romnia, cu cele 27,72 mld.euro, se claseaz
pe locul 15, dup ri precum Germania (461,84 mld.euro), Frana (367,27 mld.euro), Marea
Britanie (324,91 mld.euro), Italia (241,15 mld.euro), Spania (194,96 mld.euro), Olanda
(176,85 mld.euro), etc.
Pe ansamblul perioadei 2007-2009, valoarea estimat a cheltuielilor cu bunuri, lucrri i
servicii licitate s-a majorat n Romnia cu aproape 2 procente, n timp ce, cea mai nsemnat
cretere dintre trile UE a fost nregistrat n Bulgaria (+35,81%) (Graficul nr.1).
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2011
Table no. 1. Evolution of the weight of the value of the public procurement notices
in the GDP during 2007-2009 in the EU Member States (%)
2007 2008 2009 2009-2007 (percentage points)
Austria 1.7 2.4 2.3 0.6
Belgium 3.2 3.6 4 0.8
Bulgaria 8.5 8.7 12.2 3.7
Czech Republic 4.1 5.3 5.2 1.1
Cyprus 5.1 4.7 8.3 3.2
Denmark 3.2 3 4 0.8
Estonia 7.2 8.2 8.4 1.2
Finland 3.6 4 4.9 1.3
France 3.4 3.7 3.8 0.4
Germany 1.1 1.2 1.4 0.3
Greece 3.5 2.8 3.7 0.2
Ireland 3.4 2.5 2.2 -1.2
Italy 2.3 2.3 2.5 0.2
Latvia 12.4 9.6 8.6 -3.8
Lithuania 4.2 3.6 4.9 0.7
Luxemburg 1.2 1.3 1.5 0.3
Malta 2 1.2 6.9 4.9
Great Britain 4 4.4 6.2 2.2
Holland 1.8 1.9 2 0.2
Poland 5.8 7.2 8.2 2.4
Portugal 1.7 2.5 3.4 1.7
Romania 7.3 7.4 6.5 -0.8
Slovakia 3.6 3.7 6.8 3.2
Slovenia 6.5 5.1 6.1 -0.4
Spain 4.1 3.6 3.4 -0.7
Sweden 3 3.5 4.2 1.2
EU-27 3 3.1 3.6 0.6
Hungary 4.5 5.2 6.3 1.8
Source: European Commission, Directorate General Internal Market, 2010.
At the EU-27 level, the estimated value of the expenses made for procuring the goods,
services and works tendered in 2009 is of EUR 2288.44 billion, by 9.41 % more than in
2007. From this perspective, Romania has recorded EUR 27.72 billion, being ranked on the
15
th
place, after countries like Germany (EUR 461.84 billion), France (EUR 367.27 billion),
Great Britain (EUR 324.91 billion), Italy (EUR 241.15 billion), Spain (EUR 194.96 billion),
Holland (EUR 176.85 billion), etc.
During 2007-2009, the estimated value of the expenses for the tendered goods, works,
and services has increased in Romania by almost 2%; the most important increase recorded
by the EU Member States has been in Bulgaria (+35.81%) (Graph no.1).
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2011
Graficul nr. 1. Dinamica valorii achiziiilor de bunuri, lucrri i servicii n anul 2009
comparativ cu 2007 n statele membre UE-27 (%)
23.13
14.88
35.81
13.57
15.76
15.92
-2.62
15.33
11.67
15.73
15.92
5.63
12.10
-6.80
-7.13
17.76
5.26
-11.08
20.96
-0.41
18.71
1.99
-0.14
15.71
21.21
0.34
9.41
-5.51
-15.00 -5.00 5.00 15.00 25.00 35.00
Austria
Belgia
Bulgaria
Cehia
Cipru
Danemarca
Estonia
Finlanda
Frana
Germania
Grecia
Irlanda
Italia
Letonia
Lituania
Luxemburg
Malta
Marea Britanie
Olanda
Polonia
Portugalia
Romnia
Slovacia
Slovenia
Spania
Suedia
UE-27
Ungaria
Nu n ultimul rnd, numrul de anunuri de licitaii publicate n Jurnalul Oficial al Uniunii
Europene a reprezentat n Romnia 2,5% din numrul total nregistrat pe ansamblul UE-27,
fiind n descretere semnificativ cu nu mai puin de 31,7% n 2009 comparativ cu anul
2007 (de la 5650 de anunuri n 2007 la 3859 de anunuri n 2009) (Graficul nr.2).
Graficul nr. 2. Dinamica numrului de anunuri de licitaii publicate n Jurnalul Oficial
al Uniunii Europene n anul 2009 comparativ cu 2007 n statele membre UE-27 (%)
23.0
38.8
9.7
9.7
27.8
9.2
-28.3
-23.6
15.7
2.8
0.1
28.5
-35.0
-20.0
16.1
45.9
66.3
15.9
4.0
27.8
23.5
-31.7
12.8
61.0
34.8
7.1
2.6
8.5
-40.0 -20.0 0.0 20.0 40.0 60.0
Belgia
Bulgaria
Cehia
Danemarca
Germania
Estonia
Irlanda
Grecia
Spania
Frana
Italia
Cipru
Letonia
Lituania
Luxemburg
Ungaria
Malta
Olanda
Austria
Polonia
Portugalia
Romnia
Slovenia
Slovacia
Finlanda
Suedia
Marea Britanie
UE-27
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2011
Graph no. 1. Dynamics of the 2009 value of the procurements of goods, works and services
compared to 2007 in EU-27 Member States (%)
For Romania, the number of the public procurement notices published in 2009 in
the Official Journal of the European Union was of 2.5% of the total number per
EU-27; this number has decreased significantly compared to 2007, namely by 31.7%
(Graph. no.2).
Graph no. 2. Dynamics of the number of public procurement notices published in the Official
Journal of the European Union in 2009, compared to 2007 in the EU-27 Member States (%)
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2011
Diminuarea numrului de achiziii publicate n Jurnalul Oficial al Uniunii Europene poate fi
explicat fie pe baza reorientrii autoritilor contractante ctre segmentul de licitaii cu
valori sub pragul necesar publicrii n Jurnalul Oficial al UE, fie pe manifestarea efectelor
crizei economico-financiare, ce a determinat contracia sumelor disponibile pentru achiziii
publice.
Valoarea cheltuielilor cu bunuri, lucrri i servicii ca procent din PIB s-a situat n Romnia
anului 2009 la 23,9%, n cretere cu 2,1 puncte procentuale fa de anul 2007, n timp ce
media comunitar a nregistrat o majorare cu 2,5 procente n aceeai perioad (Tabelul nr.2).
Tabelul nr. 2. Evoluia valorii cheltuielilor cu bunuri, lucrri i servicii ca procent din
PIB n perioada 2007-2009 n statele membre ale UE-27
2007 2008 2009 2009-2007 (puncte procentuale)
Austria 18,2 19,4 22,2 4,00
Belgia 14,5 15,1 16,5 2,00
Bulgaria 16,3 16,6 18,9 2,60
Cehia 25,2 25,4 26,6 1,40
Cipru 10,3 10,4 11,3 1,00
Danemarca 14,9 15,2 17,6 2,70
Estonia 17,1 18,1 19 1,90
Finlanda 16,1 17,1 19,4 3,30
Frana 17,4 17,6 19,3 1,90
Germania 16,4 16,9 19,3 2,90
Grecia 10 9,5 11,1 1,10
Irlanda 13,8 15,3 16,9 3,10
Italia 13,9 14,1 15,9 2,00
Letonia 16 15,7 17 1,00
Lituania 17,7 17,5 17,6 -0,10
Luxemburg 13,4 13,7 15,7 2,30
Malta 14 15,3 14,1 0,10
Marea Britanie 17,8 19 20,9 3,10
Olanda 25,6 26,2 30,9 5,30
Polonia 18,2 18,7 18,2 0,00
Portugalia 16,1 17 19,2 3,10
Romnia 21,8 20 23,9 2,10
Slovacia 25,5 24,5 22 -3,50
Slovenia 15,1 15,6 17,3 2,20
Spania 15,3 15,1 18,5 3,20
Suedia 17,5 18,2 20,3 2,80
UE-27 16,9 17,3 19,4 2,50
Ungaria 21,7 20 22,3 0,60
75
2011
The decrease of the number of the public procurements published in the Official Journal
of the European Union can be explained by the reorientation of the contracting authorities
towards tenders which are below the threshold requiring their publication in the EU Official
Journal or by the effects of the economic and financial crisis, which have generated the
contraction of the sums available for public acquisitions.
In Romania, the 2009 expenses made for acquiring goods, works and services were of
23.9% of the GDP, with 2.1 percentage points more than in 2007, while the Community
average has increased in the same period of the time by 2.5 % (Table no.2).
Table no. 2. Evolution of the expenses for acquiring goods, works and services, as
percentage in the GDP, during 2007-2009 in EU-27 Member States
2007 2008 2009 2009-2007 (percentage points)
Austria 18.2 19.4 22.2 4.00
Belgium 14.5 15.1 16.5 2.00
Bulgaria 16.3 16.6 18.9 2.60
Czech Republic 25.2 25.4 26.6 1.40
Cyprus 10.3 10.4 11.3 1.00
Denmark 14.9 15.2 17.6 2.70
Estonia 17.1 18.1 19 1.90
Finland 16.1 17.1 19.4 3.30
France 17.4 17.6 19.3 1.90
Germany 16.4 16.9 19.3 2.90
Greece 10 9.5 11.1 1.10
Ireland 13.8 15.3 16.9 3.10
Italy 13.9 14.1 15.9 2.00
Latvia 16 15.7 17 1.00
Lithuania 17.7 17.5 17.6 -0.10
Luxemburg 13.4 13.7 15.7 2.30
Malta 14 15.3 14.1 0.10
Great Britain 17.8 19 20.9 3.10
Holland 25.6 26.2 30.9 5.30
Poland 18.2 18.7 18.2 0.00
Portugal 16.1 17 19.2 3.10
Romania 21.8 20 23.9 2.10
Slovakia 25.5 24.5 22 -3.50
Slovenia 15.1 15.6 17.3 2.20
Spain 15.3 15.1 18.5 3.20
Sweden 17.5 18.2 20.3 2.80
EU-27 16.9 17.3 19.4 2.50
Hungary 21.7 20 22.3 0.60
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2011
3. Cteva considerente de ordin legislativ n domeniul achiziiilor publice din Romnia
n prezent, legislaia incident n materia achiziiilor publice din Romnia este asigurat de
Ordonana de Urgen a Guvernului nr.34/2006 cu modificrile i completrile ulterioare (denumit
n continuare Ordonan), precum i de legislaia secundar aferent. Actul normativ mai sus
menionat reglementeaz procedurile de atribuire a contractului de achiziie public, a contractului
de concesiune de lucrri publice i a contractului de concesiune de servicii, precum i modalitile
de soluionare a contestaiilor formulate mpotriva actelor emise n legtur cu aceste proceduri.
Conform Ordonanei, contractele de achiziie public pot fi:
a) contracte de lucrri;
b) contracte de furnizare;
c) contracte de servicii.
Procedurile de atribuire a contractului de achiziie public sunt:
a) licitaia deschis, respectiv procedura la care orice operator economic interesat
are dreptul de a depune oferta;
b) licitaia restrns, prin invitaie de participare, respectiv procedura la care orice
operator economic are dreptul de a-i depune candidatura, urmnd ca numai
candidaii selectai s aib dreptul de a depune oferta;
c) dialogul competitiv, respectiv procedura la care orice operator economic are
dreptul de a-i depune candidatura i prin care autoritatea contractant
conduce un dialog cu candidaii admii, n scopul identificrii uneia sau mai
multor soluii apte s rspund necesitilor sale, urmnd ca, pe baza soluiei/
soluiilor, candidaii selectai s elaboreze oferta final;
d) negocierea (cu sau fr publicarea unui anun de participare), respectiv
procedura prin care autoritatea contractant deruleaz consultri cu candidaii
selectai i negociaz clauzele contractuale, inclusiv preul, cu unul sau mai
muli dintre acetia;
e) cererea de oferte, respectiv procedura simplificat prin care autoritatea
contractant solicit oferte de la mai muli operatori economici.
Autoritile contractante au, totodat, dreptul de a utiliza licitaia electronic n urmtoarele
situaii:
a) ca o etap final a licitaiei deschise, a licitaiei restrnse, a negocierii cu
publicarea prealabil a unui anun de participare ori a cererii de oferte, nainte
de atribuirea contractului de achiziie public, i numai dac specificaiile
tehnice au fost definite cu precizie n caietul de sarcini;
b) la reluarea competiiei dintre operatorii economici care au semnat un
acord-cadru;
77
2011
3. Certain remarks on the public procurement legal framework
At present, the legislation in the public procurement field is represented by the Government
Emergency Ordinance no.34/2006 with the subsequent amendments and completions
(hereinafter the Ordinance), as well as by the related secondary legislation. The abovementioned
normative act regulates the awarding procedures of the public procurement contracts, of the
public works concession contracts and of the services concession contracts, as well as the
ways for solving the complaints against the acts issued based on these procedures.
According to the Ordinance, public procurement contracts can be:
a) works contracts;
b) supplying contracts;
c) services contracts.
The procedures for awarding public procurement contracts are the following ones:
a) the open tender, namely the procedure where any interested economic operator
has the right to present its bid;
b) the limited tender, through an invitation to attend a tender, namely the
procedure where any economic operator has the right to submit its application,
following that only the selected bidders have the right to submit its bid;
c) the competitive dialogue, namely the procedure where any economic operator
has the right to submit its bid and by which the contracting authority conducts
a dialogue with the qualified bidders in order to identify one or several solutions
able to meet its requirements, following that, based on the identified solution/
solutions, the selected bidders elaborate their final bid;
d) the negotiation (with or without prior publication of a participation notice),
namely the procedure where the contracting authority carries out consultations
with the selected bidders and negotiates with them the contractual clauses,
including the price;
e) the request of offers, namely the simplified procedure by which the contracting
authority requests offers from several economic operators.
At the same time, the contracting authorities have the right to use the electronic tender in
the following situations:
a) as a final step of the opened tender, of the limited tender, of the negotiation
with a prior publication of a participation notice, or of the request of offers,
before awarding the public procurement contract and only if the specifications
define precisely the technical requirements;
b) when restarting the competition between the economic operators which have
signed a framework agreement;
78
2011
c) cu ocazia depunerii ofertelor ferme n vederea atribuirii unui contract de
achiziie public prin utilizarea unui sistem de achiziie dinamic
10
.
Autoritatea contractant are dreptul de a organiza un concurs de soluii, respectiv o procedur
special prin care achiziioneaz, ndeosebi n domeniul amenajrii teritoriului, al proiectrii
urbanistice i peisagistice, al arhitecturii sau n cel al prelucrrii datelor, un plan sau un proiect,
prin selectarea acestuia pe baze concureniale de ctre un juriu, cu sau fr acordarea de premii.
Totodat, autoritatea contractant are dreptul de a achiziiona direct produse, servicii sau
lucrri, n msura n care valoarea achiziiei nu depete echivalentul n lei a 15.000 euro
pentru fiecare achiziie de produse, servicii sau lucrri. Orice autoritate contractant are
dreptul de a aplica procedurile de atribuire prin utilizarea mijloacelor electronice, prin
intermediul Sistemului Electronic de Achiziii Publice (SEAP).
4. Este preul produselor din contractele de achiziie public mai mic dect
preul pieei?
Licitaiile publice sunt n permanenta atenie a autoritii de concuren, din punct de
vedere al posibili tii de trucare a acestora. Anul trecut, Consiliul Concurenei a nfiinat
o direcie dedicat activitii de detectare i investigare a licitaiilor, respectiv Direcia Licitaii
i Petiii. n acest sens, n acord cu bunele practice OCDE n domeniul investigrii licitaiilor
trucate, au fost promovate o serie de msuri, menite s furnizeze instrumente de lucru
eficiente.
Astfel, pentru a crea un cadru formal de cooperare cu toate instituiile publice cu atribuii n
domeniul achiziiilor publice, au fost ncheiate protocoale de colaborare cu Autoritatea
Naional pentru Reglementarea i Monitorizarea Achiziiilor Publice, Consiliul Naional de
Soluionare a Contestaiilor, Unitatea pentru Coordonarea i Verificarea Achiziiilor Publice
din subordinea Ministerului Finanelor Publice, Corpul de Control al Primului Ministru i Curtea
de Conturi.
ncepnd cu anul 2010, experii Consiliului Concurenei, alturi de specialitii acestor instituii
colaboreaz n cadrul Modulului de Licitaii Trucate, creat pentru a permite schimbul rapid
de informaii ntre acetia. Un rezultat notabil a fost introducerea certificatului de
participare cu o ofert independent la licitaii, prin care ntreprinderilor participante n
cadrul procedurii de atribuire a contractelor publice li se solicit s completeze o declaraie
de certificare pe proprie rspundere c au un comportament n concordan cu regulile de
concuren.
n vederea obinerii unor indicii cu privire la posibilitatea existenei unor nelegeri ntre
ntreprinderi care particip la licitaii cu oferte trucate, Consiliul Concurenei a elaborat un
Ghid privind detectarea licitaiilor trucate, care urmeaz s fie larg a diseminat n rndul
autoritilor publice contractante din Romnia.
10 Sistemul de achiziie dinamic se realizeaz numai prin intermediul SEAP i numai pentru achiziia unor produse de uz curent,
ale cror caracteristici general disponibile pe pia satisfac nevoile autoritii contractante.
79
2011
c) when submitting the offers for awarding a public procurement contract through
a dynamic procurement system
10
.
The contracting authority has the right to organise a contest of solutions, namely a special
procedure by which it procures especially from the field of land improvement, urban and
landscape planning, architecture or from the field of data processing, a project or a plan,
through competitive selection means performed by a jury with or without award granting.
At the same time, the contracting authority has the right to acquire directly products, goods
or services in so far the value of the procurement does not overcome the equivalent in
RON of EUR 15,000 for each acquisition of products, services or works. Any contracting
authority has the right to apply the electronic tender procedures through the Public
Procurement Electronic System (SEAP).

4. Is the price of the products from the public procurement contracts lower
than the market price?
Public tenders are permanently under the attention of the competition authority, as
regards the possibility of bid gigging. Last year, the Competition Council has established
a directorate specialized in detecting and investigating tenders, namely the Tenders and
Petitions Directorate. In this respect, in compliance with OECDs best practices in the field
of investigating bid rigging, a series of measures have been promoted, designed to supply
efficient working tools.
Thus, in order to create a formal cooperation framework between all the public institutions
with attributions in the field of public tenders, cooperation protocols have been concluded
with the National Authority for the Regulation and Monitoring of Public Acquisitions, the
National Council for Solving Complaints, the Unit for the Coordination and Verification of
Public Acquisitions under the authority of the Ministry of Public Finances, the Control Body
of the Prime Minister and with the Romanian Court of Accounts.
Starting with 2010, the experts of the Competition Council and the specialists of these
institutions are collaborating within the Bid Rigging Module, created so as to allow the
rapid exchange of information between them. A notable result was the introduction of the
certificate of participation in tenders with an independent offer, by which the
representatives of the undertakings attending the procedure for assigning public contracts
are requested to certify through a declaration in lieu of an oath that they will conduct in
accordance with the competition rules.
In order to obtain clues concerning possible anticompetitive agreements between
undertakings participating in bid rigging, the Competition Council has elaborated a Guide
for the detection of bid rigging, following to be widely disseminated among the Romanian
public contracting authorities.
10 The dynamic procurement system is carried out only through SEAP (Public Procurement Electronic System) and only for the
procurement of the products of current use, with characteristics generally available on the market and which satisfy the needs
of the contracting authority.
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2011
n prezent, autoritatea de concuren are n derulare un numr de 7 investigaii din
domeniul achiziiilor publice pe urmtoarele piee/autoriti: armament i aparatur optic
aferent, Spitalul Clinic de Urgen Cluj, pregtirea profesional pentru fermierii care dein
ferme de semisubzisten, efectuarea de lucrri la Centrul Prichindel Punghina, contractul
de Lucrri de marcaje rutiere, longitudinale, transversale i diverse pe drumurile naionale
din administrarea CNADNR SA, produse lactate pentru elevii din clasele I-VIII precum i
pentru copii precolari din judeul Giurgiu i lucrri de construcii drumuri i poduri n
judeul Neam.
Concomitent cu derularea investigaiilor, n cursul acestui an, Consiliul Concurenei a efectuat
o analiz privind eficiena sistemului de achiziii publice, din punct de vedere al preurilor
practicate n cadrul contractelor derulate cu diferite autoriti contractante.
n acest sens, au fost solicitate, prin SEAP, informaii referitoare la achiziiile publice, inclusiv
cumprrile directe, derulate n perioada ianuarie 2010-februarie 2011, pentru un numr de
21 de produse.
Din cele 21 de produse, pentru care s-au desfurat 1.727 de licitaii i 37.345 de cumprri
directe n perioada ianuarie 2010 - februarie 2011, au fost selectate pentru analiz un numr
de 4 produse, respectiv: motorin, ulei pentru gtit, cartofi i hrtie xerox, pentru care s-au
derulat licitaii, sub diverse forme.
Pentru cele 4 produse a fost determinat un eantion stratificat n funcie de mai multe
criterii, i anume: tipul procedurii, licitaie on-line sau non-online i judee de provenien
ale agenilor economici ctigtori ai contractelor de achiziii publice.
Acestor ctigtori le-au fost solicitate informaii legate de contractele ncheiate cu autoritile
contractante (copii dup contracte i acte adiionale), precum i copii dup facturile rezultate
din contract i dup facturi emise altor clieni din perioadele similare contractelor rezultate
din licitaiile publice.
Din analiza comparativ a preurilor contractelor de achiziie public i a celor facturate altor
ageni economici au rezultat urmtoarele aspecte:
a) Pentru produsul motorin euro 5:
n perioada ianuarie 2010-februarie 2011 s-au derulat 301 licitaii avnd ca obiect achiziia
de motorin, dintre acestea fiind incluse n eantionul statistic 203 licitaii.
Rata de rspuns la solicitarea de informaii a fost de 68,5%, respectiv pentru un numr de
139 de licitaii ctigate de 33 de societi comerciale. Aceste societi provin dintr-un numr
de 20 de judee, repartizate astfel (Graficul nr.3):
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2011
At the present time, the competition authority is carrying out 7 investigations in the field of
public procurement on the following markets/envisaging the following authorities: armaments
and the connected optical equipment, the Emergency Clinical Hospital Cluj, the professional
training for farmers owning subsistence farms, certain works carried out at Prichindel
Punghina Centre, the contract Longitudinal, transversal and diverse road marking works
on the national roads managed by CNADNR SA (National Romanian Company of Highways
and National Roads), milk products for the children in the 1
st
-8
th
grades and for the
preschool children from Giurgiu County, and roads and bridges construction in Neam County.
At the same time with investigating these cases, during this year, the Competition Council
has carried out an analysis on the efficiency of the public acquisition system, as regards
the prices established by the contracts concluded with different contracting authorities.
For this reason, the Competition Council has requested through SEAP data on the public
procurements, including the direct acquisitions, performed during January 2010-February
2011 for a number of 21 products.
Out of the 21 of products, for which 1,727 tenders and 37,345 direct acquisitions were
organised during the abovementioned period of time, 4 products have been selected,
namely: diesel, cooking oil, potatoes and copy paper. These products have been acquired
through different types of tender.
A stratified sample has been determined for the 4 products, based on several criteria,
namely: the tender procedure type, the on-line or non-on-line nature of the tender, and the
counties where the economic agents that have won the public acquisitions are activating.
The winning undertakings have been requested to supply information concerning the
contracts concluded with the contracting authorities, copies of the contracts and the
additional acts, as well as copies of the invoices issued by them to other clients in similar
periods of time to the ones stipulated by the contracts awarded after the public tenders.
The following conclusions have been reached as a result of the comparative analysis
between the prices in the public procurement contracts and the ones charged to other
economic agents:
a) For the Euro 5 diesel product:
During January 2010-February 2011, 301 tenders have been carried out having the object
of procuring diesel, out of which 203 tenders have been included in the statistical sample.
The response rate was of 68.5%, covering 139 tenders won by 33 undertakings. These
companies are activating in 20 counties, as it is presented below (Graph. no.3):
82
2011
Graficul nr. 3. Repartizarea teritorial a numrului de firme ce au rspuns solicitrii
de informaii pentru produsul motorin euro 5
AB, 6%
AG, 3%
BC
3%
BH, 6%
BN, 3%
BR, 3%
BT, 3%
BUC, 21%
CJ, 6%
CL, 12%
DJ, 3%
GL, 3%
HD, 3%
IF, 3%
IS, 3%
MH, 3%
MS, 3%
OT, 3%
PH, 3%
SB, 6% AB, 6%
AG, 3%
BC
3%
BH, 6%
BN, 3%
BR, 3%
BT, 3%
BUC, 21%
CJ, 6%
CL, 12%
DJ, 3%
GL, 3%
HD, 3%
IF, 3%
IS, 3%
MH, 3%
MS, 3%
OT, 3%
PH, 3%
SB, 6%
Sursa: Calculaii pe baza informaiilor furnizate de agenii economici, 2011.
Pentru a putea realiza o comparaie a preurilor s-a determinat un pre mediu (fr TVA) pe
fiecare agent economic i pe fiecare contract ncheiat de acesta cu autoritile contractante,
respectiv cu ali clieni, ca medie ponderat cu cantitatea livrat.
De asemenea, a fost determinat i un pre mediu pe ansamblul licitaiilor i al livrrilor pentru clieni.
Astfel, preul mediu la motorin pentru licitaiile analizate s-a situat la 3,96 lei/litru (fr TVA),
n timp ce preul mediu practicat n relaia cu ali clieni a fost de 3,82 lei/litru (fr TVA).
Comparnd preurile celor 33 de ageni economici se remarc tendina de practicare a
unor preuri net superioare n relaia cu autoritile contractante, n cazul tuturor
tipurilor de licitaii, cea mai mare diferen fiind nregistrat la procedura de negociere
accelerat (+0,42 lei/litru, fr TVA) (Tabelul nr.3).
Tabelul nr. 3. Evoluia preului motorinei euro 5 n cazul autoritilor
contractante i al altor clieni neguvernamentali (lei/litru, fr TVA)
Preul motorinei
pentru autoriti
contractante
Preul motorinei
pentru ali clieni
fr licitaie
Diferene
de pre
(%)
Invitaie de participare - online 3,88 3,68 5,43
Licitaie deschis - online 4,0 3,8 5,26
Invitaie de participare - nononline 3,75 4,14 -9,42
Licitaie deschis- nononline 3,90 3,71 5,12
Negociere accelerat - nononline 4,13 3,71 11,32
Negociere fr anun de participare - nononline 4,17 4,28 -2.57
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2011
Graph no. 3. Territorial repartition of the number of firms which have responded to
the information request concerning the product Euro 5 diesel
AB, 6%
AG, 3%
BC
3%
BH, 6%
BN, 3%
BR, 3%
BT, 3%
BUC, 21%
CJ, 6%
CL, 12%
DJ, 3%
GL, 3%
HD, 3%
IF, 3%
IS, 3%
MH, 3%
MS, 3%
OT, 3%
PH, 3%
SB, 6% AB, 6%
AG, 3%
BC
3%
BH, 6%
BN, 3%
BR, 3%
BT, 3%
BUC, 21%
CJ, 6%
CL, 12%
DJ, 3%
GL, 3%
HD, 3%
IF, 3%
IS, 3%
MH, 3%
MS, 3%
OT, 3%
PH, 3%
SB, 6%
Source: Calculations based on the data supplied by the undertakings, 2011.
In order to carry out a price comparative analysis, an average price has been established (without
VAT) for each undertaking and for each contract concluded by these undertakings with the
contracting authorities and with other clients, as an average weighted with the delivered quantity.
Furthermore, an average price for all tenders and client deliveries has been calculated. Thus,
the average diesel price for the analysed tenders was of RON 3.96 /litre (without VAT),
and the average price charged to other clients was of RON 3.82/litre (without VAT).
By comparing the prices charged by the 33 undertakings, it can be noticed that these
undertakings have the tendency of charging obvious higher prices to the contracting authorities.
This conclusion is valid for all the types of tender, the largest difference being recorded in the
case of the accelerated negotiation procedure (+ RON 0.42/litre, without VAT) (Table no.3).
Table no. 3. Evolution of the Euro 5 diesel price charged to the contracting
authorities and to other nongovernmental clients (RON/litre, without VAT)
The diesel price charged
to the contracting
authorities
The diesel price
charged to other
clients, without tender
Price
difference
(%)
Invitation to attend a tender, online procedure 3.88 3.68 5.43
Open tender, online procedure 4.0 3.8 5.26
Invitation to attend a tender, non-online procedure 3.75 4.14 -9.42
Open tender, non-online tender 3.90 3.71 5.12
Accelerated negotiation, non-online procedure 4.13 3.71 11.32
Negotiation without a prior publication of a
participation notice, non-online procedure
4.17 4.28 -2.57
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2011
Aplicarea procedurilor de licitaie deschis i de invitaie de participare (online i
nononline) n cazul contractelor cu autoritile publice a condus la practicarea unor
preuri sub nivelul preului mediu de 3,96 lei/litru.
La nivel de jude, preul mediu al motorinei euro 5 a nregistrat evoluii oscilante. Astfel, cel
mai nsemnat decalaj se nregistreaz n judeul Dolj, unde preul practicat n relaia cu
autoritile contractante este mai mare cu 24,1% dect cel facturat altor clieni, fiind urmat
de judeul Bihor, unde diferena este de 11% (Tabelul nr.4). La polul opus se situeaz judeul
Brila, agenii economici practicnd preuri mai mici cu 9,2% n cazul contractelor de
achiziie public fa de ali clieni.
Tabelul nr. 4. Evoluia preului mediu la motorina euro 5 practicat n relaia cu
autoriti contractante i cu ali clieni, la nivel de jude (lei/litru, fr TVA)
Autoritate
contractant
Diferene fa de preul
mediu pe total licitaii
Ali clieni
Diferene fa de preul mediu pe
total clieni
AB 3,68 -0,28 3,7 -0,12
AG 4,41 0,45 4,19 0,37
BC 3,81 -0,15 3,86 0,04
BH 4,12 0,16 3,71 -0,11
BN 3,76 -0,2 3,75 -0,07
BR 3,44 -0,52 3,79 -0,03
BT 3,75 -0,21 3,87 0,05
BUC 3,88 -0,08 3,74 -0,08
CJ 4,1 0,14 3,89 0,07
CL 3,8 -0,16 3,67 -0,15
DJ 4,69 0,73 3,78 -0,04
HD 3,76 -0,2 3,76 -0,06
IF 4,59 0,63 4,58 0,76
IS 4,22 0,26 4,2 0,38
MH 3,73 -0,23 3,76 -0,06
MS 3,82 -0,14 3,85 0,03
OT 3,7 -0,26 -3,82
PH 3,39 -0,57 -3,82
SB 3,93 -0,03 3,93 0,11
Comparativ cu media pe total licitaii analizate, 30% din judee se situeaz peste preul
mediu de 3,96 lei/litru (Arge, Bihor, Cluj, Dolj, Ilfov i Iai), cu procente cuprinse ntre +4%
(Bihor) i +18,4% (Dolj).
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2011
The open tender and the invitation to attend a tender (online and non-online)
procedures have generated for the contracting authorities prices under the average
price of RON 3.96/litre.
At the county level, the average price of Euro 5 diesel has recorded oscillating evolutions.
Thus, the most important gap is registered by Dolj County, where the price charged to the
contracting authorities is higher by 24.1% than the one charged to other clients. It is followed
by Bihor County, where the difference is of 11% (Table no.4). The opposite situation is
recorded by Brila County, where the undertakings have charged to the contracting authorities
prices lower by 9.2% compared to those charged by them to other clients.
Table no. 4. County level evolution of the Euro 5 diesel average price charged to
the contracting authorities and to other clients (RON/litre, without VAT)
Contracting authority
Differences from the average
price for all the tenders
Other clients
price for all the clients
AB 3.68 -0.28 3.7 -0.12
AG 4.41 0.45 4.19 0.37
BC 3.81 -0.15 3.86 0.04
BH 4.12 0.16 3.71 -0.11
BN 3.76 -0.2 3.75 -0.07
BR 3.44 -0.52 3.79 -0.03
BT 3.75 -0.21 3.87 0.05
Bucharest 3.88 -0.08 3.74 -0.08
CJ 4.1 0.14 3.89 0.07
CL 3.8 -0.16 3.67 -0.15
DJ 4.69 0.73 3.78 -0.04
HD 3.76 -0.2 3.76 -0.06
IF 4.59 0.63 4.58 0.76
IS 4.22 0.26 4.2 0.38
MH 3.73 -0.23 3.76 -0.06
MS 3.82 -0.14 3.85 0.03
OT 3.7 -0.26 -3.82
PH 3.39 -0.57 -3.82
SB 3.93 -0.03 3.93 0.11
Compared to the average price of all analysed tenders, 30% of the counties record
average prices above the average price of RON 3.96/litre (Arge, Bihor, Cluj, Dolj, Ilfov
and Iai), by percentages fluctuating between +4% (Bihor) and +18,4% (Dolj).
86
2011
n privina preurilor practicate ctre ali clieni, 40% din judee se situeaz peste medie
(Arge, Bacu, Botoani, Cluj, Ilfov, Iai, Mure i Sibiu), cu o plaj de oscilaie cuprins ntre
+0,8% (Bihor) i +19,9% (Ilfov).
Trebuie precizat c pe parcursul derulrii contractelor cu autoriti i instituii publice
s-au nregistrat ajustri ale preului, reflectate n ncheierea periodic de acte
adiionale. Totodat, preurile practicate de distribuitorii de motorin sunt mai mari dect
n cazul procurrii direct de la productor, fiecare distribuitor avnd un adaos comercial, al
crui nivel este precizat n contract. Aceast situaie poate fi pus, printre altele, pe seama
politicii comerciale a productorilor, respectiv al existenei unui portofoliu prestabilit de clieni,
n funcie de cantitatea cumprat.
De asemenea, n cazul productorilor, exist tendina de ncheiere de contracte de
furnizare de motorin pe baz de bonuri valorice. Preul de achiziie al motorinei difer
n funcie de preul existent la pomp n momentul cumprrii efective a combustibilului.
Practic, contractul reprezint o garanie a cumprrii unei cantiti de motorin, aceasta
putnd fiind ns mai mic, innd cont de preul din ziua achiziiei.
n cazul productorilor, se nregistreaz i acordarea de discounturi, acestea regsindu-
se i la nivelul autoritilor contractante n special n cazul plii n avans a motorinei
achiziionate. Scadena facturilor n cazul productorilor este destul de redus (2 sptmni)
ceea ce le asigur o recuperare mai rapid a contravalorii produselor livrate.
b) Pentru produsul ulei de gtit:
Alegerea acestui produs n eantion a fost motivat de faptul c face parte din coul zilnic,
fiind regsit n sistemul de achiziii publice n special la nivelul unitilor din structurile
militarizate, cmine de ngrijire, cantine ale centrelor de asisten social pentru copii,
penitenciare, etc.
ntruct n nomenclatorul de coduri alocate produselor, uleiul de gtit are un cod separat de
uleiul pentru prjit, eantionul a fost construit prin cumularea licitaiilor pentru ambele
categorii, fiind denumit generic ulei de gtit.
Urmnd aceeai procedur de analiz, n perioada ianuarie 2010-februarie 2011, s-au derulat
un numr de 73 de licitaii avnd ca obiect furnizarea de ulei, acestea fiind incluse n
totalitate n eantion.
Rata de rspuns a fost de 69,9%, respectiv 51 de licitaii ctigate de 18 ageni economici
din 13 judee, repartizai astfel (Graficul nr.4).
87
2011
As regards the average prices charged to other clients, 40% of the counties register values
over the average (Arge, Bacu, Botoani, Cluj, Ilfov, Iai, Mure and Sibiu), fluctuating
between +0.8% (Bihor) and +19.9% (Ilfov).
It must be underlined that during the operation of the contracts concluded with the
public authorities and institutions, price adjustments have been operated, reflected
by the regular conclusion of additional acts. At the same time, the prices charged by
diesel distributors are higher than the ones charged if the fuel would be procured directly
from the producers, because each distributor have a certain trade mark-up level mentioned
in the contract. This situation can by explained, among others, by the commercial policy
of the producers, namely by their pre-set client portfolio, based on the acquired quantity.
Moreover, producers have the tendency to conclude diesel supplying contracts based
on vouchers. The diesel acquisition price differs depending on the pomp price - when the
fuel is actually bought. In other words, the contract is a guarantee for the acquisition of a
certain diesel quantity, but this quantity can be in fact lower, depending on the price
charged during the acquisition day.
Producers also grant discounts, which are practiced in relation with the contracting
authorities too, especially when they pay the acquired diesel in advance. The payment
deadline of the invoices issued by the producers is quite short (2 weeks), providing them
a more rapid recuperation of the value of the delivered products.
b) For the cooking oil product:
This product has been chosen because it is part of the daily consumption basket,
and it is also acquired by the public procurement system especially by the military
units, caring homes, canteens, of the social assistance centres for children,
penitentiaries, etc.
Because the product code nomenclature provides different codes for the cooking and for
the frying oil, the statistical sample has been built by cumulating the tenders for both
categories of oil, the result being named cooking oil.
Following the same analysis procedure, during January 2010-February 2011, 73
tenders for procuring cooking oil have been carried out. They have been included in
the sample.
The response rate was of 69.9%, covering 51 tenders won by 18 undertakings from 13
counties, as it is presented below (Graph nr.4).
88
2011
Graficul nr. 4. Repartizarea teritorial a numrului de ageni economici pentru
produsul ulei de gtit care au rspuns solicitrii de informaii
DJ, 5%
MM, 5%
OT, 11%
TM, 5%
VL, 11%
HD, 5%
PH, 5%
TM, 5%
AG, 5%
BH, 5%
BUC, 5%
BZ, 11%
CT, 17%
n cazul uleiului, din analiza societilor ce au furnizat informaii legate de pre, reiese c autoritile
contractante procur acest produs cu precdere de la intermediari i mai puin direct de la
productor. Din cei 18 ageni economici ctigtori ai unor contracte de achiziie public, 66,7%
au furnizat informaii i despre preurile practicate ctre ali clieni neguvernamentali, ceea ce a
stat la baza determinrii unui pre mediu pe contract, pe fiecare tip de procedur de licitaie.
Preul mediu de achiie de ctre autoritile contractante a fost de 3,64 lei/litru (fr
TVA), cu 5,2% peste preul mediu practicat pentru ali clieni, care s-a situat la 3,46
lei/litru (fr TVA). Avnd la baz informaii comparabile, din analiz a reieit c preurile
oscileaz att pe tipuri de proceduri ct i n funcie de modalitatea de achiziie, respectiv
online sau nononline (Tabelul nr.5).
Tabelul nr. 5. Evoluia preului uleiului pentru gtit n cazul autoritilor
contractante i al altor clieni neguvernamentali (lei/litru, fr TVA)
Preul uleiului pentru
autoriti contractante
Preul uleiului facturat
la ali clieni
Diferene de
pre (%)
Invitaie de participare, online 3,96 3,89 1,8
Licitaie deschis, online 3,58 3,20 11,9
Invitaie de participare, nononline 4,81 5,55 -13,3
Negociere fr publicarea unui anun,
nononline
3,99 4,54 -12,1
89
2011
Graph no. 4. Territorial repartition of the number of undertakings which have
responded to the information request concerning the product cooking oil
DJ, 5%
MM, 5%
OT, 11%
TM, 5%
VL, 11%
HD, 5%
PH, 5%
TM, 5%
AG, 5%
BH, 5%
BUC, 5%
BZ, 11%
CT, 17%
Following the analysis of the undertakings that have supplied price data concerning the cooking oil, it
was concluded that contracting authorities procure this product mainly from intermediaries
and only in fewer cases directly from producers. Out of the 18 undertakings that have won public
procurement contracts, 66.7% have supplied data also on the prices charged to other nongovernmental
clients, which was the base for calculating an average contract price for each type of tender procedure.
The average acquisition price for the contracting authorities was of RON 3.64/litre
(without VAT), by 5.2% higher than the average price charged to other clients - RON
3.46/litre (without VAT). Based on comparable data, the analysis has concluded that prices
fluctuate depending on the type of tender procedure and on the procurement manner,
namely on the online or non-online nature of the procedures (Table no.5).
Table no. 5. Evolution of the price of the cooking oil for the contracting
authorities and for other nongovernmental clients (RON/litre, without VAT)
Price of the cooking oil for
the contracting authorities
Price of the cooking oil
charged to other clients
Price
differences (%)
Invitation to attend a tender, online
procedure
3.96 3.89 1.8
Open tender, online procedure 3.58 3.20 11.9
Invitation to attend a tender, non-online
procedure
4.81 5.55 -13.3
Negotiation without a prior publication of a
participation notice, non-online procedure
3.99 4.54 -12.1
90
2011
La nivel de jude, cel mai ridicat pre de achiziie s-a regsit n Bucureti, respectiv 7
lei/litru (fr TVA), pre contractat i meninut constant n cadrul unui contract ncheiat de
o Direcie General de Asisten i Protecia Copilului, pe parcursul perioadei 21.05.2010-
14.04.2011 (Tabelul nr.6).
Tabelul nr. 6. Evoluia preului mediu la uleiul pentru gtit practicat n relaia cu
autoriti contractante i cu ali clieni, la nivel de jude (lei/litru, fr TVA)
Autoritate
contractant
Ali
clieni
mediu pe total clieni
AG 3,07 -0,57
BH 3,95 0,31 4,36 0,9
BUC 7 3,36
BZ 4,09 0,45 4,04 0,58
CT 3,73 0,09 3,15 -0,31
DJ 4 0,36 3,59 0,13
HD 4,46 0,82 4,6 1,14
MM 5,06 1,42
OT 3,49 -0,15
PH 5,5 1,86 5,6 2,14
TM 4,95 1,31 5,21 1,75
VL 4,63 0,99 4,73 1,27
VS 3,6 -0,04
Cu excepia a 3 judee (Arge, Olt i Vaslui), celelalte 10 judee nregistreaz preuri peste
media celor intervievai n relaia cu autoritile contractante.
Ceea ce este de reinut n cadrul achiziiei de ulei este oscilaia redus a preului pe parcursul unui
contract, eventualele majorri intervenind ca urmare a creterilor de pre la materia prim.
c) Pentru produsul cartofi:
Un alt produs extrem de important n alimentaie i ale crui oscilaii de pre au influenat
nivelul inflaiei generat de produsele alimentare l reprezint cartoful. Din cele 194 de licitaii
derulate n perioada ianuarie 2010-februarie 2011, au fost incluse n eantion 146 de licitaii,
rata de rspuns fiind de 40%, pentru un numr de 33 de ageni economici ctigtori.
Preul mediu facturat autoritilor contractante s-a situat la 1,02 lei/kg (fr TVA), n
timp ce preul facturat altor clieni a nregistrat valoarea de 0,87 lei/kg.
n cazul acestui produs, preul practicat n relaia cu autoritile contractante este mai redus
dect cel facturat altor clieni doar n cazul licitaiilor deschise de tip online, cu peste 20 de
procente (Tabelul nr.7).
91
2011
At the county level, the higher acquisition price has been recorded in Bucharest,
namely RON 7/litre (without VAT). This price has been set and maintained constantly within
a contract concluded by a General Directorate for Children Protection during 21 May 2010-
14 April 2011 (Table no.6).
Table no. 6. Evolution of the cooking oil average price charged to the contracting
authorities and to other clients, at the county level (RON/litre, without VAT)
Contracting
authority
price for all the tenders
Other
clients
price for all the clients
AG 3.07 -0.57
BH 3.95 0.31 4.36 0.9
BUC 7 3.36
BZ 4.09 0.45 4.04 0.58
CT 3.73 0.09 3.15 -0.31
DJ 4 0.36 3.59 0.13
HD 4.46 0.82 4.6 1.14
MM 5.06 1.42
OT 3.49 -0.15
PH 5.5 1.86 5.6 2.14
TM 4.95 1.31 5.21 1.75
VL 4.63 0.99 4.73 1.27
VS 3.6 -0.04
With the exception of 3 counties (Arge, Olt and Vaslui), the other 10 counties record prices over
the average value reported by the ones questioned on their relation with the contracting authorities.
We must underline the low oscillation of the price during the running of a contract,
the possible increases being the result of the price rises of the raw materials.
c) For the potatoes product:
Another extremely important alimentary product, whose price fluctuations have influenced
the inflation generated by the food products, is the potatoes. Out of the 194 tenders carried
out during January 2010-February 2011, 146 have been included into the sample. The
response rate was of 40%, covering 33 wining undertakings.
The average price charged to the contracting authorities was of RON 1.02/kg (without
VAT), and the average price charged to other clients was of RON 0.87/kg.
For this product, the price charged to the contracting authorities is lower by over
20% than the one charged to other clients only in the case of the online tenders.
(Table no.7).
92
2011
Mai mult dect att, negocierea fr publicarea unui anun de participare a condus la
practicarea unor preuri ctre autoritile contractante cu aproape 37% mai mari dect
cele facturate altor clieni.
Tabelul nr. 7. Evoluia preului la produsul cartofi n cazul autoritilor
contractante i al altor clieni neguvernamentali (lei/kg, fr TVA)
Preul cartofului
pentru autoriti
contractante
Preul cartofului
facturat la ali clieni
fr licitaie
Diferene
de pre
(%)
Invitaie de participare, online 0,98 0,95 +3,2
Licitaie deschis, online 1,06 1,33 -20,3
Invitaie de participare, nononline 1,04 1,03 +0,97
Licitaie deschis nononline 1,04
Negociere fr anun de participare, nononline 0,82 0,60 +36,7
La nivel de jude, n funcie de disponibilitatea datelor, preurile facturate autoritilor
contractante sunt mai reduse doar n 6 judee, cu procente relativ mici, cuprinse ntre -0,02%
(Suceava) i -0,61% (Braov), de altfel judee cu tradiie n cultivarea cartofului (Tabelul nr.8).
Tabelul nr. 8. Evoluia preului mediu la cartofi practicat n relaia cu autoriti
contractante i cu ali clieni, la nivel de jude (lei/kg, fr TVA)
Autoritate
contractant
Diferene fa de preul mediu
pe total licitaii (lei/kg)
Ali
clieni
pe total clieni (lei/kg)
BH 2,2 1,18
BR 1,05 0,03 0,16 -0,71
BT 0,8 -0,22
Buc 1,3 0,28 1,03 0,16
BV 0,79 -0,23 1,4 0,53
BZ 0,9 -0,12
CT 1,8 0,78
CV 0,5 -0,52
DB 0,72 -0,3 1,54 0,67
DJ 0,82 -0,2 1,1 0,23
GR 1,48 0,46
HR 1,32 0,3
HD 1,15 0,13 0,76 -0,11
IF 1,3 0,28
IS 1,07 0,05 0,9 0,03
MM 1,59 0,57
MS 1,1 0,08
OT 1,35 0,33 1,43 0,56
PH 0,79 -0,23 1,16 0,29
93
2011
Moreover, the negotiation without a prior participation notice has resulted in prices
higher by almost 37% for the contracting authorities, compared to the ones charged
to other clients.
Table no. 7. Evolution of the price for the potatoes product for the contracting
authorities and for other nongovernmental clients (RON/kg, without VAT)
Potatoes price charged
to the contracting
authorities
Potatoes price charged to
other clients, without
tender
Price
differences
(%)
Invitation to attend a tender, online procedure 0.98 0.95 +3.2
Open tender, online tender 1.06 1.33 -20.3
Invitation to attend a tender, non-online 1.04 1.03 +0.97
Open tenders, non-online procedure 1.04
Negotiation without a prior participation notice,
non-online procedure
0.82 0.60 +36.7
At the county level, depending on the availability of the data, the prices charged to the contracting
authorities are lower only in 6 counties, by relatively small percentages, fluctuating between -0.02%
(Suceava) and -0.61% (Braov), which are counties with tradition in cultivating potatoes (Table no.8).
Table no. 8. County level evolution of potatoes average price charged to the
contracting authorities and to other clients (RON/kg, without VAT)
Contracting
authority
Differences from the average price
for all the tenders (RON/kg)
Other
clients
price for all the clients (RON/kg)
BH 2.2 1.18
BR 1.05 0.03 0.16 -0.71
BT 0.8 -0.22
Bucharest 1.3 0.28 1.03 0.16
BV 0.79 -0.23 1.4 0.53
BZ 0.9 -0.12
CT 1.8 0.78
CV 0.5 -0.52
DB 0.72 -0.3 1.54 0.67
DJ 0.82 -0.2 1.1 0.23
GR 1.48 0.46
HR 1.32 0.3
HD 1.15 0.13 0.76 -0.11
IF 1.3 0.28
IS 1.07 0.05 0.9 0.03
MM 1.59 0.57
MS 1.1 0.08
OT 1.35 0.33 1.43 0.56
PH 0.79 -0.23 1.16 0.29
94
2011
Autoritate
contractant
pe total licitaii (lei/kg)
Ali
clieni
pe total clieni (lei/kg)
SV 0,79 -0,23 0,8 -0,07
TM 1,39 0,37
VL 1,58 0,56
VS 1,45 0,43
O problem la nivelul achiziiei de cartofi este legat de proveniena produsului. Achiziiile
de cartofi se fac n principal de la intermediari, i uneori angrositi, i ntr-o mic msur
direct de la productor sau grupuri de productori. Aceast situaie poate fi explicat prin
existena de bariere la participarea n cadrul unei licitaii. De exemplu, productorii trebuie
s fie constituii sub o form juridic i s prezinte la licitaie toate documentele solicitate
de autoritile contractante, uneori ntr-un termen foarte scurt, ceea ce face imposibil
participarea i adjudecarea unor astfel de contracte.
d) Pentru produsul hrtie de xerox:
n cazul hrtiei de xerox, n perioada ianuarie 2010-februarie 2011, s-au derulat 52 de licitaii,
acestea fiind incluse n totalitate n analiz. Rata de rspuns a agenilor economici ctigtori
ai licitaiilor a fost de 49,1%, respectiv un numr de 16 societi comerciale. Cei 16 ageni
economici provin din 14 judee ale rii, respectiv cte 2 ageni economici din Cluj i Mure
i cte un agent economic din Bucureti, Arge, Arad, Braov, Buzu, Constana, Covasna,
Dmbovia, Hunedoara, Iai, Timi i Vlcea.
Preul mediu pe total licitaii a fost de 10 lei/top de hrtie (fr TVA), mai mare cu
6,6% fa de preul topului de hrtie facturat altor clieni.
Din comparaia preurilor practicate n relaia cu autoritile contractante i a celor facturate
altor clieni a reieit faptul c cele mai mici preuri se regsesc n cazul licitaiilor deschise
online, diferena fa de preul altor clieni fiind de 8 procente (Tabelul nr.9).
Tabelul nr. 9. Evoluia preului la produsul hrtie xerox n cazul autoritilor
contractante i al altor clieni neguvernamentali (lei/top, fr TVA)
Preul hrtiei xerox pentru
autoriti contractante
Preul hrtiei xerox facturat la
ali clieni fr licitaie
Diferene
de pre (%)
Invitaie de participare, online 9,3 8,9 +4,5
Licitaie deschis, online 9,2 10 -8,0
Invitaie de participare, nononline 8,88 9,0 -1,33
Licitaie deschis, nononline 11,8 11,1 +6,3
Negociere fr anun de participare,
nononline
10,1 10,6 -4,7
95
2011
Contracting
authority
Differences from the average price
for all the tenders (RON/kg)
Other
clients
price for all the clients (RON/kg)
SV 0.79 -0.23 0.8 -0.07
TM 1.39 0.37
VL 1.58 0.56
VS 1.45 0.43
Another issue concerning the potatoes procurements is related to the origin of the product.
Potatoes procurements are mainly done from intermediaries, and sometimes from
wholesalers, and, to a smaller extent, directly from producers or producer groups. This
situation can be explained by the barriers to attend a tender. For example, producers must
be organised under a juridical form and they are required to present all the documents
requested by the contracting authorities, sometimes in a very short term - this makes
impossible for them to attend a tender and, consequently, to win such contracts.
d) For the copy paper product:
For the copy paper, during January 2010-February 2011, 52 tenders have been carried out,
and all of them have been included in the analysis. The response rate of the tender wining
undertakings has been of 49.1%, namely 16 undertakings have responded. These undertakings
are activating in 14 counties, namely 2 firms in Cluj County and 2 in Mure County, one
undertaking in Bucharest and one undertaking in each of the following counties Arge, Arad,
Braov, Buzu, Constana, Covasna, Dmbovia, Hunedoara, Iai, Timi and Vlcea.
The average price for the total tenders has been of 10 RON/paper top (without VAT),
higher by 6.6% compare to the paper top price charged to other clients.
By comparing the prices charged to the contracting authorities and to other clients, it has
been concluded that the lowest prices have resulted from the online open tenders - lower
by 8% than the price charged to other clients (Table no.9).
Table no. 9. Evolution of the price for the copy paper product charged to the
contracting authorities and to other nongovernmental clients (RON/top, without VAT)
Price of the copy paper charged
to the contracting authorities
Price of the copy paper
charged to other clients
Price
differences (%)
Invitation to attend a tender, online
procedure
9.3 8.9 +4.5
Open tender, online procedure 9.2 10 -8.0
Invitation to attend a tender, Non-online
procedure
8.88 9.0 -1.33
Open tender, non-online tender 11.8 11.1 +6.3
Negotiation without a prior participation
notice, non-online tender
10.1 10.6 -4.7
96
2011
La nivel de jude, cele mai mari preuri ale hrtiei xerox n cadrul contractelor cu
autoriti publice se regsesc n judeele Dmbovia, Iai, Cluj i Bucureti, cu preuri
peste preul mediu pe ansamblul licitaiilor. n privina preurilor facturate altor clieni,
ierarhia se modific semnificativ, 11 din cele 14 judee depind media preului pe
total clieni (Tabelul nr.10).
Tabelul nr. 10. Evoluia preului mediu la hrtie xerox practicat n relaia cu autoriti
contractante i cu ali clieni, la nivel de jude (lei/top, fr TVA)
Jude
Autoritate
contractant
(lei/top)
Ali clieni
pe total clieni (lei/litru)
AG 9,98 -0,02 11,3 1,9
AR 8,85 -1,15 8,93 -0,47
Buc 10,7 0,7 10,4 1
BV 9,98 -0,02 10,6 1,2
BZ 9,45 -0,55 9,63 0,23
CJ 10,43 0,43 14,8 5,4
CT 10,9 0,9 10,98 1,58
CV 9,13 -0,87 9,88 0,48
DB 13,57 3,57 16,46 7,06
HD 8,43 -1,57 8,76 -0,64
IS 14 4 14,24 4,84
MS 9,69 -0,31 11,2 1,8
TM 9,09 -0,91 9,11 -0,29
VL 9,9 -0,1 11,35 1,95
5. Concluzii i propuneri
Pe ansamblul celor 4 produse, rspunsul la ntrebarea: Sunt preurile din contractele de
achiziii publice mai mici dect cele facturate altor clieni? este Nu, cu mici excepii
de la un produs la altul sau de la o procedur de licitaie la alta. Realiznd un top al judeelor
cu cele mai mari preuri facturate autoritilor contractante (prin ordonarea acestora
descresctor i acordarea unui rang pornind de la 1 pentru cele mai mari preuri) situaia se
prezint astfel (Tabelul nr.11):
97
2011
At the county level, the highest prices of the copy paper, as they resulted from the contracts
concluded with the contracting authorities, are in the counties of Dmbovia, Iai, Cluj and
Bucharest prices above the average price calculated for all the tenders. As regards the
prices charged to other clients, the situation changes significantly, because 11 of the 14
counties overcome the average price calculated for all the clients. (Table no.10).
Table no. 10. County level evolution of the average price of the copy paper charged
to the contracting authorities and to other clients (RON/top, without VAT)
County
Contracting
authority
Price differences from the
average price calculated
for all the tenders (RON/
top)
Other clients
Price differences from the
average price calculated for
all the clients (RON/top)
AG 9.98 -0.02 11.3 1.9
AR 8.85 -1.15 8.93 -0.47
Bucharest 10.7 0.7 10.4 1
BV 9.98 -0.02 10.6 1.2
BZ 9.45 -0.55 9.63 0.23
CJ 10.43 0.43 14.8 5.4
CT 10.9 0.9 10.98 1.58
CV 9.13 -0.87 9.88 0.48
DB 13.57 3.57 16.46 7.06
HD 8.43 -1.57 8.76 -0.64
IS 14 4 14.24 4.84
MS 9.69 -0.31 11.2 1.8
TM 9.09 -0.91 9.11 -0.29
VL 9.9 -0.1 11.35 1.95
5. Conclusions and proposals
For the 4 products, the general answer to the question: Are the prices resulted from
the public contracts lower than the ones charged to other clients? is No, with
small exemptions, depending on the product and on the tender procedure. The hierarchy
of the counties depending on the counties with the highest prices charged to the contracting
authorities (where they are ranked decreasing and rated from 1 for the highest price level)
is presented below (Table no.11):
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2011
Tabelul nr. 11. Ierarhizarea judeelor dup preurile practicate cu autoritile
contractante n urma licitaiilor publice (1 = preul cel mai ridicat)
Motorin Ulei Cartofi Hrtie xerox
AB 17
AG 3 13 13
AR 7
BC 10
BH 5 12 1
BN 12
BR 18 15
BT 14 18
Buc 8 11 10 3
BV 19 14
BZ 6 16 10
CJ 6 2
CL 11
CT 8 2 4
CV 23 9
DB 22 5
DJ 1 7 17
GR 5
HD 13 5 12 6
HR 9
IF 2 11
IS 4 14 1
MH 15
MM 2 3
MS 9 13 11
OT 16 10 8
PH 19 1 20
SB 7
SV 21
TM 3 7 8
VL 4 4 12
VS 9 6
Analiza achiziiilor publice pentru cele 4 produse a pus n eviden faptul c, n general, prin
licitaiile online preurile contractelor ncheiate cu diferite autoriti i instituii publice
sunt mai reduse fa de preurile facturate altor clieni neguvernamentali.
Majorarea progresiv a plafonului licitaiilor online pornind de la cele 40 de procente din
prezent, poate avea drept efect realizarea de economii bugetare din sistemul de achiziii publice.
n privina achiziiei de motorin, preurile variaz ca urmare a creterii preurilor la
productor, aceast situaie putnd fi explicat pe seama creterii cotaiilor internaionale.
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2011
Table no. 11. The hierarchy of the counties depending on prices charged to the
contracting authorities following public tenders (1 = the highest price)
Diesel Cooking oil Potatoes Copy paper
AB 17
AG 3 13 13
AR 7
BC 10
BH 5 12 1
BN 12
BR 18 15
BT 14 18
Bucharest 8 11 10 3
BV 19 14
BZ 6 16 10
CJ 6 2
CL 11
CT 8 2 4
CV 23 9
DB 22 5
DJ 1 7 17
GR 5
HD 13 5 12 6
HR 9
IF 2 11
IS 4 14 1
MH 15
MM 2 3
MS 9 13 11
OT 16 10 8
PH 19 1 20
SB 7
SV 21
TM 3 7 8
VL 4 4 12
VS 9 6
The analysis of the public tenders for procuring the 4 products has highlighted that, in general,
the online tenders provide the lowest prices for the contracts concluded with the
contracting authorities compared to the ones charged to other nongovernmental clients.
Budgetary savings could be generated by the public acquisition system through increasing
progressively the present 40% threshold.
As regards the diesel procurement, prices vary as a result of the price increases performed
by producers, and this can be explained by the rising international oil quotations.
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2011
Cele mai importante probleme se regsesc ns la achiziia uleiului de gtit i cartofilor. Astfel,
uleiul pentru gtit este procurat de autoritile contractante cu precdere de la intermediari, ale
cror preuri de comercializare sunt net superioare preurilor productorilor. Din cei 18 ageni
economici, ce au dat curs cererii de informaii a autoritii de concuren, doar unul singur este
productor de ulei, restul fiind intermediari i ca urmare, practicnd preuri peste preul
productorului, att n cazul contractelor de achiziie public ct i al celor aferente altor clieni.
Preul mediu al intermediarilor n contractele analizate depete, n mod regulat cu
peste 10 procente preul productorului, analiza diferenelor de pre putnd fi realizat
doar de la caz la caz, respectiv de la un contract de achiziie la altul.
La cartofi, preul practicat n contractele de achiziie public nglobeaz alturi de caracterul
sezonier al produsului i un nivel destul de ridicat al adaosului comercial practicat de
operatorii economici. Achiziia de cartofi de la intermediari se realizeaz la preuri net superioare
preurilor de la productor sau grupuri de productori, acetia fiind n imposibilitatea de a participa
la licitaii, fie datorit gradului redus de transparen al achiziiilor, fie din cauza existenei unor
bariere, mai mult sau mai puin justificate. Din analiza contractelor de achiziie public a reieit
faptul c preurile productorilor la cartofi variaz, n perioadele de producie, ntre 0,65 lei/kg i
0,97 lei/kg (fr TVA), pentru ca preurile intermediarilor s se situeze sistematic peste acest nivel.
Procurarea de cartofi direct de la productori poate avea ca efect realizarea unor economii
nsemnate de ctre autoritile contractante. ncurajarea fenomenului de creare de grupuri
de productori, cu putere de negociere i cu personalitate juridic, constituie un prim
pas n ncercarea de valorificare a produciei interne, inclusiv prin mecanismul
achiziiei publice. Dac pn n iunie 2011, existau 4 grupuri de productori ce funcionau
nc din 2006/2007, din care 3 n judeul Braov i unul n Constana, la momentul actual
mai exist nregistrate doar 2 grupuri de productori, unul n Braov iar cellalt n Constana.
Ca i n cazul altor produse agroalimentare, nfiinarea de cooperative integrate se lovete i n cazul
cartofului fie de reticena productorilor agricoli legat de nencrederea n fenomenul cooperatist, fie
de existena unei legislaii prea stufoase, care de multe ori sufoc activitatea unor astfel de entiti.
n cazul ultimului produs analizat, hrtia xerox, preurile de achiziie variaz de la un jude
la altul, existnd, ns, o tendin vizibil de reducere fa de nivelul preurilor practicate
ctre ali clieni neguvermentali.
O atenie deosebit trebuie, ns, acordat procesului de monitorizare al achiziiilor publice.
Practicarea, n unele cazuri, a unor preuri mult mai mari pentru autoritile
contractante fa de alte contracte rezultate din licitaii poate ridica suspiciuni legate
de trucarea licitaiilor pe vertical i orizontal.
n acest caz, colaborarea activ a tuturor instituiilor cu atribuii n domeniul achiziiilor
publice, att din punct de vedere al eliminrii unor posibile disfuncionaliti, precum i
al sancionrii cu severitate a oricror ncercri de trucare a licitaiilor, se va repercuta
favorabil asupra nivelului cheltuielilor alocate pentru procurarea de bunuri i servicii de
ctre autoritile contractante.
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2011
The main important issues are related to the cooking oil and the potatoes. The contracting
authorities mainly procure the cooking oil from intermediaries, which have selling prices obviously
superior than the producers. Out of the 18 undertakings that have responded to the information
request of the competition authority, only one is a cooking oil producer, the rest of them being
intermediaries. As a result, based on the public procurement contracts, they charge prices over
the producer price. This situation is similar to the prices charged to other nongovernmental clients.
In the analysed contracts, as a rule, the average price of the intermediaries overcomes
the producer price by over 10%; an analysis of the price differences can be made only
by comparing separately two cases and two procurement contracts.
In potatoes case, the price, as it has resulted from the public contracts, is influenced by
the seasonal nature of the product and by the quite high trade mark-up used by the
undertakings. Potatoes procurement from intermediaries is being done at clearly high prices
compared to the ones charged by producers or by producers groups. The last ones are not able
to attend tenders because of the low level of transparency, or because of certain barriers, more
or less justified. The analysis of the public procurement contracts has revealed that potatoes
producer prices are fluctuating during the production times, between 0.65 RON/kg and 0.97
RON/kg (without VAT), and the intermediaries prices are systematically over these levels.
Procuring potatoes directly from producers can generate significant savings for the
contracting authorities. Encouraging the creation of producers groups, with bargaining
power and juridical personality, is a first step in trying to capitalise the internal
production, including through the public procurement mechanism. If until June 2011,
there were 4 producers groups functioning starting from 2006/2007, out of which 3 in
Braov County and one in Constana County, nowadays only 2 producers groups are still
activating, one in Braov and the other one in Constana.
As in the case of other food products, the setting up of potatoes integrated cooperatives is
hampered by the reticence of the agricultural producers generated by the mistrust in the
cooperative model, or by the too thick legislation, which suffocates the activity of such entities.
In the case of the last analysed product - the copy paper -, the acquisition price varies
from county to county; however, there it has a visible decreasing tendency compared to
the level charged to other nongovernmental clients.
However, a special attention must be paid to the monitoring process of the public
procurements. The cases when the prices paid by the contracting authorities are
higher than the ones resulted from other tenders can create suspicions concerning
the possible horizontal or vertical bid riggings.
In these cases, the active cooperation of all the institutions with attributions in the
field of public procurement as regards the elimination of the possible dysfunctions
and regarding the severe sanctioning of any bid rigging attempt will have a positive
effect over the expenses of the contracting authorities related to the procurement
of goods and services.
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2011
INDICATORI PENTRU EVALUAREA CONCURENEI
DIN ANUMITE SECTOARE ECONOMICE
Consiliul Concurenei din Romnia are n atribuii aplicarea prevederilor Legii nr.
21/1996, republicat, cu modificrile i completrile ulterioare, precum i a
prevederilor cu privire la funcionarea concurenial a pieelor din Tratatul privind
funcionarea Uniunii Europene.
Pentru facilitarea monitorizrii i evalurii concurenei din diferite piee i sectoare
economice autoritatea de concuren i-a propus elaborarea unor metodologii i
dezvoltarea unor indicatori care s poat releva situaia concurenei din pieele analizate.
Un mediu concurenial sntos induce un nivel de pre competitiv pentru produsele oferite,
un grad nalt de inovaie tehnologic i o gam sortimental variat, toate aceste elemente
concurnd la creterea bunstrii consumatorilor.
n acest capitol se prezint i se discut coninutul i aplicabilitatea unor indicatori folosii
pentru monitorizarea concurenei din sectorul bancar, sectorul farmaceutic i sectorul
construciei de drumuri.
Cuvinte cheie: concuren, dimensionarea pieei, indicatori de concentrare.
1. Introducere
Un obiectiv important pentru Consiliul Concurenei l constituie dezvoltarea de metodologii i
indicatori cu coninut economic pe baza crora s poat fi evaluat nivelul concurenei din
anumite piee i sectoare economice. Evaluarea concurenei din sectoarele economiei faciliteaz
ndeplinirea atribuiilor derivate din aplicarea prevederilor legii concurenei i faciliteaz
interaciunea cu alte autoriti de supraveghere i reglementare a activitii economice.
Construcia de indicatori dedicai evalurii bunei funcionri a sectoarelor din economie
necesit identificarea seturilor de date disponibile public sau a datelor care pot fi colectate
cu un efort logistic rezonabil, avnd n vedere optimizarea utilizrii resurselor umane i de
timp la nivelul autoritii de concuren.
Termeni i definiii
Indicatorii care au semnificaie pentru politica de concuren, respectiv care pot constitui
o baz de evaluare pentru intensitatea concurenei din sectoarele economiei, se pot grupa
n urmtoarele categorii:
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2011
INDICATORS FOR ASSESSING THE COMPETITION
ON CERTAIN ECONOMIC SECTORS
The Romanian Competition Council applies Competition Law no.21/1996, republished,
with the subsequent amendments and completions, as well as the provisions concerning
the competitive functioning of the markets as they are stipulated by the Treaty on the
Functioning of the European Union.
In order to facilitate the monitoring and the assessment of different markets and
economic sectors, the competition authority has identified certain methodologies and
indicators for evaluating the competition on the analysed markets. A healthy competitive
environment induces a competitive price for the offered products, a high level of
technological innovation and a varied assortment. All these elements lead to the increase
of consumers welfare.
This chapter presents the structure and the applicability of certain indicators used for
monitoring the competition on the banking sector, the pharmaceutical sector and
the road construction sector.
Key words: competition, market dimensioning, concentration indicators.
1. Overview
An important objective of the Competition Council is to develop methodologies and
economic-based indicators that can be used for assessing the competition on certain
markets and economic sectors. Evaluating the competition on the national economy
facilitates the application of the Competition Law and the interaction with other surveying
and regulatory authorities.
The development of indicators for evaluating the proper functioning of the economic sectors
requires identifying the sets of public available data or of the data that can be collected
through a reasonable logistical effort, taking into account the optimisation of the human
and time resources of the institution.
Terms and definitions
The significant indicators for the competition policy, namely which can represent a base
for assessing the intensity of the competition on economic sectors, can be grouped on
the following categories:
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2011
Indicatori care vizeaz structura si dimensiunea pieei acetia sunt eseniali n
etapa de definire a pieei relevante i sunt necesari pentru stabilirea tipului de pia
analizat.
Indicatori ai gradului de concentrare a pieei teoria economic indic o legtur
direct ntre gradul de concentrare a pieei i performana ntreprinderilor din pia; n
plus, autoritile de concuren stabilesc praguri de decizie n raport cu cotele juctorilor
dintr-o pia.
Indicatori de profitabilitate productivitate aceti indicatori pot avea relevan pentru
evaluarea concurenei atunci cnd se urmrete evoluia lor n timp sau atunci cnd se
compar magnitudinea lor cu indicatori pentru piee similare, dar separate geografic.
Indicatori specifici mecanisme de formare a preului, indicatori privind diferenialul de
dobnd (DD), analiza evoluiei cotelor de pia etc.
n acest capitol, prezentm seturi de indicatori aplicabili n Romnia pentru sectorul
bancar, pentru sectorul farmaceutic i pentru sectorul construciilor de drumuri.
Tabelul nr. 1. Indicatori pentru evaluarea concurenei
Indicatori relevani
pentru concuren
Denumire
(Acronim)
Sectorul
bancar
Sectorul
farmaceutic
Sectorul
construciilor
de drumuri
Indicatori care vizeaz
structura i dimensiunea pieei
Aria de cuprindere a pieei
Valoarea pieei
Nr. de ageni din pia
Nr. de produse din pia
-
-
-
Indicatori ai gradului de
concentrare a pieei
Rata de concentrare (CR)
Indicele Herfindahl-Hirschman (HHI)
Indicele Hall-Tideman (HTI)
Indicele Panzar-Rosse (P-R)
Indicele comprehensiv al concetrrii (CCI)
-
-
Indicatori de profitabilitate
productivitate
Return-on-Assets (ROA)
Return-on-Equity (ROE)
Rata rentabilitii activitii de baz
Indicatori structurali de tip market power
-
-
-
-
-
-
-
-
Indicatori specifici
Indicii diferenialului de dobnd (DD)
Formarea preului
-
-
-
-
-
-
2. Indicatori care vizeaz structura i dimensiunea pieei

Indicatorii de dimensionare a pieei exprim amploarea i condiiile n care se deruleaz
activitatea pe o pia.
Dei pentru analiza dimensiunii pieei se utilizeaz cu precdere indicatori statici, trebuie
amintit faptul c pieele sunt dinamice, dimensiunile lor evolueaz n timp iar structurile
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2011
Indicators envisaging the structure and the dimension of the market they are
essential for the relevant market definition and are necessary for establishing the type
of the analysed market.
Market concentration indicators the economic theory indicates a direct relation
between the level of market concentration and the economic performances of the
undertakings on a certain market; moreover, competition authorities establish decision
thresholds based on the shares of the players on a certain market.
Profitability productivity indicators these indicators can be relevant for assessing
the competition when their value is monitored over the time or when their magnitude is
compared to the one of the indicators for similar, but geographically distinctive markets.
Specific indicators price formation mechanisms, interest rate differential indexes
(IRD), the analysis of market shares etc.
This chapter presents certain sets of indicators applicable in Romania for the banking
sector, for the pharmaceutical sector and for the road construction sector
Table no. 1. Competition assessment indicators
Competition relevant
indicators
Name
(Acronym)
Banking
sector
Pharmaceutical
sector
Road
construction
sector
Indicators of the market
structure and dimension
Market area
Market value
Number of market players
Number of market products
-
-
-
Market concentration
indicators
Concentration Ratio (CR)
Herfindahl-Hirschman Index (HHI)
Hall-Tideman Index (HTI)
Panzar-Rosse Index(P-R)
Comprehensive Concentration Index (CCI)
-
-
Profitability-productivity
indicators
Return-on-Assets (ROA)
Return-on-Equity (ROE)
Core business operating income
Market power structural indexes
-
-
-
-
-
-
-
-
Specific indicators
Interest rate differential indexes (IRD)
Price formation
Market power structural indicators
-
-
-
-
-
-
2. Indicators envisaging markets structure and dimension

Market dimension indicators reflect the scale of an activity and how an activity is carried
out on a market.
Although static indicators are mainly used to measure the dimension of a market, it must be
noted that markets are dynamic, their dimensions evolve in time and their internal structure
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2011
interioare se modific, schimbndu-se astfel i fizionomia pieelor. Cei mai uzuali indicatori
ce vizeaz structura i dimensiunea pieei sunt: aria de cuprindere a pieei, numrul de
ntreprinderi active pe pia, valoarea pieei i numrul de produse din pia.
Aria de cuprindere a pieei se refer la dimensiunea spaial a acesteia. Aria de cuprindere
a pieei exprim o delimitare a dimensiunilor geografice ale pieei la un moment dat:
pia local, regional, naional etc.
3. Indicatori ai gradului de concentrare a pieei
Nivelul de concentrare al unei piee ofer informaii utile n analiza gradului de concuren
de pe piaa respectiv. Exist mai muli indicatori de concentrare a pieei, fiecare dintre
acetia plecnd de la calculul cotelor de pia. n general, acestea se calculeaz pe baza
valorii produselor/serviciilor comercializate, dar ele pot fi calculate i pe baza volumului de
produse/servicii comercializate (n funcie de specificul pieei). Principalii indicatori ai gradului
de concentrare a pieei sunt urmtorii:
Rata de concentrare (Concentration Ratio CR)
Reprezint suma cotelor de pia a celor mai mari n juctori de pe pia. n general cuprinde
un numr restrns de ntreprinderi pentru a pune n eviden caracterul de oligopol al
pieei (un numr mic de ntreprinderi controleaz o parte semnificativ a pieei).
Valoarea sa variaz ntre 0 (concuren perfect) i 100 (oligopol dac n > 1i monopol
dac n = 1).
Rata de concentrare se calculeaz dup formula:
1
K
K i
i
CR s
=
=
unde s
i
cota de pia a primelor i ntreprinderi.
Indicele Herfindahl-Hirschman (Herfindahl-Hirschman Index HHI)
Reprezint suma ptratelor cotelor de pia ale tuturor ntreprinderilor de pe pia. Prin
urmare, acesta acord o importan mai mare ntreprinderilor cu o cot de pia mai
mare.
Este cel utilizat indicator de concentrare a pieei de ctre autoritile de concuren.
Valoarea sa variaz ntre 0 (concuren perfect) i 10000 (monopol).
Cu toate acestea, nu exist niveluri unanim acceptate ale sale pentru ncadrarea unei
piee n urmtoarele categorii: pia slab concentrat, pia mediu concentrat, pia
puternic concentrat. Redm n continuare nivelurile utilizate de ctre Comisia
European
11
, respectiv DOJ-FTC
12
:
11 http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52004XC0205(02):EN:NOT .
12 http://ftc.gov/os/2010/08/100819hmg.pdf .
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2011
modifies. As a result, markets acquire a different physiognomy. The most common indicators
envisaging the structure and the dimension of the market are: the market area, the
number of market players, the market value and the number of market products.
Market area is envisaging the spatial dimension of the market. Market area expresses a
delimitation of the geographic dimensions of a market at a certain moment in time:
local, regional, national market etc.
3. Market concentration indicators
The concentration of a market offers useful information for analysing the competition level
on the respective market. There are several market concentration indicators, each of them
originating from the market shares. In general, they are calculated based on the value of
the traded products/services. According to the market specifics, they can also be calculated
based on the volume of the traded products/services. The main market concentration
indicators are the following ones:
It represents the sum of the market shares of the largest n market players. In general, it
includes a small number of undertakings so as to highlight the oligopoly nature of the
market (a small number of undertakings control a significant part of the market).
Its value fluctuates between 0 (perfect competition) and 100 (oligopoly if n > 1, and
monopoly if n = 1).
Concentration Ratio is calculated based on the formula:
1
K
K i
i
CR s
=
=
where s
i
is the market share of the largest i undertakings.
It represents the sum of the squared market shares of all the undertakings on the
market. As a result, it gives a larger importance to the undertakings holding larger
market shares.
It is the most used market concentration indicators by the competition authorities. Its
value fluctuates between 0 (perfect competition) and 10000 (monopoly).
However, there are no unanimously accepted thresholds for considering a market as part
of the following categories: low concentrated market, medium concentrated market, high
concentrated market. Below are presented the thresholds used by the European
Commission
11
and by DOJ-FTC
12
:
11 http://eur-lex.europa.eu/LexUriServ/LexUriServ.do?uri=CELEX:52004XC0205(02):EN:NOT .
12 http://ftc.gov/os/2010/08/100819hmg.pdf .
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2011
Tabelul nr. 2. Niveluri ale indicelui HHI
Grad de concentrare Valoarea HHI
Comisia European DOJ + FTC
redus < 1000 < 1500
mediu 1000 2000 1500 2500
mare > 2000 > 2500
Indicele Hall-Tideman (HTI)
Ca i n cazul HHI, indicele Hall-Tideman cuprinde cotele de pia ale tuturor ntreprinderilor
de pe pia, dar spre deosebire de acesta acord o importan sporit ntrepriderilor cu cot
de pia redus. Valoarea sa este subunitar, ea fiind egal cu 1 n cadrul pieei monopoliste.
Este util atunci cnd, dei pe o pia sunt prezente ntreprinderi cu cote mari de pia,
piaa este puternic influenat de ctre ntreprinderile cu o cot redus de pia.
Acest indice poate fi calculat dup urmatoarea formul:
1
1
2 1
n
i
i
HTI
is
=
=
-
unde i reprezint poziia firmei n raport cu mrimea cotei sale pe piaa analizat. Indicele Hall-
Tideman variaz, ca i HHI, ntre 0 si 1, i tinde spre 0, pe masur ce cotele de pia ale
companiilor tind s se egalizeze.
Indicele Panzar-Rosse (P-R) sau statistica H
Indicele Panzar-Rosse analizeaz elasticitatea veniturilor la nivelul unei bnci n raport cu
preurile inputurilor (costuri salariale, costul resurselor financiare atrase etc.) cu care se
confrunt o banc la un moment dat. Panzar i Rosse (1987)
13
au demonstrat c pe o pia
cu structur de monopol, o cretere a preurilor factorilor conduce la creterea costurilor
marginale i ca urmare nivelul de echilibru al veniturilor nregistrate de bnci se reduce.
Pentru sectorul bancar, statistica H se obine estimnd urmtoarea ecuaie de regresie:
1 2 3 4 5
ln ln ln ln ln ln DobTA ChDTA ChPTA ChCapA AV FS a b b b b b e = + + + + + +
DobTA raportul dintre veniturile din dobnzi i total active
ChDTA raportul dintre cheltuielile cu dobnzile i total active
ChPTA raportul dintre cheltuielile cu personalul i total active
ChCapA cheltuielile cu capitalul i alte cheltuieli raportat la active corporale
AV alte venituri
FS ali factori specifici ficrei bnci, dar care nu se pot atribui costurilor sau veniturilor
variabil rezidual
Statistica H va fi dat de suma coeficienilor
i
, respectiv suma coeficienilor de elasticitate
n raport cu preurile factorilor.
13 Panzar J.C. and J.N. Rosse (1987), Testing for monopoly equilibirium, Journal of Industrial Economics 35, 443-456.
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2011
Table no. 2. HHI levels
Concentration level HHI value
European Commission DOJ + FTC
low < 1000 < 1500
medium 1000 2000 1500 2500
high > 2000 > 2500
As in the HHI case, the HTI includes the market shares of all the undertakings on the
market, but unlike HHI, HTI gives a larger importance to the undertakings holding low
market shares. It has a subunit value, equal to 1 for monopoly. HHI is useful when,
although undertakings with large market shares are activating on a market, it is influenced
powerfully by the undertakings holding small market shares.
This index is calculated based on the formula:
1
1
2 1
n
i
i
HTI
is
=
=
-
where i represents the position of the firm based on its market share on the analysed market.
As in the case of HHI, IHT fluctuates from 0 to 1, and tends towards 0, as the undertakings
tend to equalise.
Panzar-Rosse Index (P-R) or H Statistic
Panzar-Rosse Index analyses the elasticity of a bank revenues compared to the input costs
(wage costs, the cost of the attracted financial resources etc.) at a certain moment in time.
Panzar and Rosse (1987)
13
have demonstrated that on a monopoly market, an increase
of the factors prices leads to the increase of the marginal costs and, as a result, the
equilibrium level of the banks revenues is reducing.
For the banking sector, H Statistic is obtained by estimating the following regression equation:
1 2 3 4 5
ln ln ln ln ln ln DobTA ChDTA ChPTA ChCapA AV FS a b b b b b e = + + + + + +
DobTA the rapport between interest revenues and total assets
ChDTA the rapport between interest expenses and total assets
ChPTA the rapport between personnel expenses and total assets
ChCapA capital expenses and other expenses/tangible assets
AV other revenues
FS other factors specific to each bank, which cannot be linked to the costs and revenues
residual variable
H Statistic is the sum of the
i
coefficients, or of the elasticity coefficients linked to
factors prices.
13 Panzar J.C. and J.N. Rosse (1987), Testing for monopoly equilibirium, Journal of Industrial Economics 35, 443-456.
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Interpretarea statisticii H se face n felul urmtor:
H0 indic o pia necompetitiv, fiecare banc poate adopta un comportament de monopolist
0<H<1 indic competiie monopolistic, adic exist un anumit nivel de concuren ntre
bnci, fr ca se fie atins nivelul unei concurene perfecte.
H=1 indic concuren perfect, lipsa barierelor la intrarea pe pia i utilizarea maxim a
capacitii disponibile n industria respectiv.
Indicele Comprehensiv al Concentrrii ( Comprehensive Concentration Index)
Acest indice se obine prin adunarea la cota de pia a companiei celei mai puternice a
unui indice ce acoper celelalte companii de pe pia. Poate fi definit ca i dublul indicelui
HH minus suma ptratelor cotelor de pia ale companiilor, cu excepia faptului c este
atribuit o pondere mai mare cotei de pia a companiei celei mai mari. Indicele se calculeaz
dup urmatoarea formul:
( )
2
1
2
2
N
i i
i
CCI s s s
=
= + -
unde s
1
este cota de pia a celei mai puternice companii i s
i
semnific cota fiecareia dintre
celelalte companii de pe pia.
Indicele comprehensiv al concentrrii variaz ntre 0 i 1. O valoare apropiat de zero
indic o piaa foarte fragmentat, n timp ce valoarea 1 semnific existena unei situaii
de monopol.
4. Indicatori de productivitate profitabilitate
Indicatorii de profitabilitate pot transmite semnale cu privire la prezena sau absena concurenei
dintr-o pia, dar numai atunci cnd sunt comparai cu un nivel de referin bine stabilit. Acest nivel
l poate constitui profitabilitatea dintr-o alt pia similar, dar distinct geografic de piaa analizat.
De asemenea, analiza prezenei mutaiilor structurale n seria de timp a ratelor profitabilitii dintr-
un sector poate transmite semnale cu privire la poteniale comportamente anti-concureniale.
Return-on-Assets
Return-on-Assets este un indicator al performanei economice frecvent raportat, care se
calculeaz prin raportarea profitului net anualizat la total active. Dei nivelul ROA este specific
fiecrui sector economic, urmrirea evoluiei n timp a acestui indicator poate furniza
informaii importante cu privire la situaia concurenei din sectorul analizat.
Return-on-Equity
Pentru acest indicator sunt valabile observaiile din paragraful anterior, singura diferen
viznd modul de calcul, respectiv raportarea profitului net anualizat la totalul capitalurilor
proprii.
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H Statistic is interpreted as follows:
H0 indicates a non-competitive market; each bank can adopt a monopolistic-type behaviour
0<H<1 indicates monopolistic competition, namely a certain competition between banks,
without attaining the perfect competition level.
H=1 indicates perfect competition, no market barriers and the maximum use of the
available capacity in the respective industry.
Comprehensive Concentration Index
This index is obtained by adding a certain index covering the other companies on the
market to the market share of the most powerful company. It can be defined as the
double of HHI minus the square market shares of the companies, excepting the fact that
the market share of the largest company receives a higher weight. The index is calculated
based on the formula:
( )
2
1
2
2
N
i i
i
CCI s s s
=
= + -
where s
1
is the market share of the most powerful company and s
i
expresses the market
share of each of the other companies on the market.
The comprehensive concentration index fluctuates between 0 and 1. A value closer
to zero indicates a very fragmented market, and the 1 value expresses a
monopoly.
4. Profitability productivity indicators
Profitability indicators can signal the presence or the absence of the competition on a
certain market, but only when they are compared to a well-defined reference level. This
level can be the profitability of another similar but geographically distinctive market.
Moreover, the analysis of the structural mutations in a certain sector in the time series of
sectors profitability rates can signal potential anticompetitive behaviours.
Return-on-Assets
Return-on-Assets is a reported economic performance indicator, calculated as the rapport
between the analysed net profit and the total assets. Although ROA has a specific level for
every economic sector, the monitoring of its evolution in time can supply important
information on the competition on the analysed sector.
Return-on-Equity
The abovementioned remarks are also available for this indicator, with the exception of its
calculation: it is determined as the rapport between the annualised net profit and the total
own capitals.
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Rata rentabilitii activitii de baz
Acest indicator se calculeaz raportnd veniturile operaionale la cheltuielile operaionale i
este necesar pentru calculul indicatorilor de putere a pieei (market-power).
5. Ali indicatori cu specific sectorial
Fiecare sector economic are anumite particulariti structurale i funcionale n raport cu
care se pot se pot defini indicatori specifici relevani pentru evaluarea concurenei. Aceti
indicatori pot s fie utilizai pentru evaluarea concurenei doar ntr-un anumit sector sau pe
o pia sau pot fi utilizai i pentru alte sectoare economice cu structuri industriale similare.
Astfel de indicatori sunt: indicatori structurali de tip market power, indici ai diferenialului
de dobnd la credite acordate / depozite atrase, mecanisme de formarea preului.
A. INDICATORI PRIVIND SECTORUL BANCAR
Sectorul bancar este un segment sensibil, de importan vital pentru buna funcionare a
unei economii de pia. Din acest motiv, sectorul bancar este atent reglementat i monitorizat
de banca central a fiecrei ri. Consiliul Concurenei manifest de asemenea un interes
constant pentru acest sector al economiei naionale, de a crui bun funcionare depinde
evoluia ntregii economii.
Bncile romneti sunt instituii financiare integrate, oferind o gam larg de produse clienilor.
Datorit specificului industriei, bncile interacioneaz pe multiple platforme (ex: sisteme de
decontare i plat administrate n comun, sistemul de tranzacionare monetar interbancar,
Centrala Riscului de Credit, etc). n mod natural, aceste platforme faciliteaz schimbul de
informaii cu valoare comercial, schimb care poate conduce la comportamente anticoncureniale,
cu efecte asupra bunstrii consumatorilor i a progresului tehnologic din industrie.
Numrul de ntreprinderi de pe pia
Sectorul bancar romnesc a traversat o decad de transformri substaniale, transformri
care au vizat creterea ponderii capitalului privat (93,4% din total active n luna martie 2011)
precum i creterea ponderii capitalului strin (85,4% din total active n luna martie 2011).
n prezent sunt active 30 de instituii de credit bnci universale, 2 instituii bancare pentru
economisire i creditare n domeniul locativ i 9 sucursale ale instituiilor de credit din statele
membre UE. La acestea se adaug o instituie bancar de credit cooperatist (Creditcoop).
Indicatori ai gradului de concentrare a pieei
Analiza indicatorilor de concentrare indic un profil concurenial al sectorului bancar
romnesc. De notat c aceast concluzie se bazeaz pe analiza unor indicatori agregai, care
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2011
Core business operating income
This indicator is calculated as the rapport between operational revenues and operational
expenses and it is necessary for determining the market power indicators.
5. Other sector specific indicators
Every economic sector has certain structural and functional characteristics that can be the
base for defining relevant specific indicators for assessing the competition. These indicators
can be used for evaluating the competition only in a specific sector or in a market and in
other economic sectors with similar industrial structures.
Such indexes are: market power structural indicators, interest rate differential indexes
related to the credits granted/the new deposits, price-setting mechanisms.
A. INDICATORS FOR THE BANKING SECTOR
The banking system is a sensible sector, of vital importance for the proper functioning of
a market economy. For this reason, the banking system is carefully regulated and monitored
by the central bank of every country. The Competition Council has also shown a constant
interest in this economic sector, because the evolution of the entire economy depends on
its accurate functioning.
Romanian banks are integrated financial institutions, offering a wide range of products to their
clients. Due to the specificity of this industry, banks interact on multiple common platforms
(for example: the jointly managed settlement and payment systems, the inter-banking monetary
transaction system, the Credit Risk Centre, etc.). Naturally, these platforms facilitate the
exchange of commercial valuable information that can generate anticompetitive behaviours
with adverse effects on consumers welfare and the technological progress in the industry.
The number of market players
The Romanian banking system has undergone a decade of significant changes envisaging
the increase of the share of the private capital (i.e. 93.4% of the total assets in March
2011), as well as of the foreign capital (i.e. 85.4% of the total assets in March 2011).
At present, 30 credit institutions universal banks, 2 savings and credit banks in the housing field
and 9 branches of the EU Member States credit institutions are activating on the Romanian market.
In addition, a cooperative credit institution (Creditcoop) also activates on the national market.
Market concentration indicators
The analysis of the concentration indicators reveals a competitive profile for the Romanian
banking system. It must be noted that this conclusion has been reached following the analysis
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2011
nu sunt delimitai pe o pia de produs strict definit. Se noteaz o concentrare sporit pe
piaa creditelor adresate ntreprinderilor, , comparativ cu piaa creditelor de consum sau a
depozitelor.
Tabelul nr. 3. Indicatori de concentrare pentru sectorul bancar romnesc
Total active
Credite ctre
ntreprinderi*
Credite de consum
gospodrii*
Depozite
CR6 0,64 0,85 0,78 0,66
CR12 0,89 0,98 0,96 0,89
HHI 1052,91 1803 1438.04 637,08
*S-au calculat doar pentru bncile care au furnizat date n Raportele Anuale din 2010.
Valoarea calculat de 0,67 pentru statistica Panzar-Rosse indic o pia concurenial, ns
sub nivelul concurenei manifestate pe pieele bancare din rile dezvoltate (Austria, Frana,
Portugalia), ns este uor superioar valorii nregistrate pentru Germania.
Tabelul nr. 4. Valori estimate pentru indicatorul Panzar-Rosse (Statistica H)
Romania* Austria** Franta** Germania** Portugalia**
0,67 0.87 0.70 0.60 0.83
* calcule proprii; ** Bikker J. i Haaf, K. Competition, concentration and their relationship: An empirical analysis
of the banking industry, Journal of Banking & Finance, vol. 26(11), pages 2191-2214.
Evoluia indicatorilor de profitabilitate (Return on assets / Return on equity)
Pentru sectorul bancar, ROA nregistreaz valori mai mici dect pentru alte industrii, parial
datorit mediului competitiv i parial datorit faptului c bncile sunt ntreprinderi cu resurse
financiare atrase semnificative.
Autoritatea de concuren este interesat de evoluia n timp a acestor indicatori economici,
deoarece un trend pronunat cresctor sau diferene semnificative ntre nivelurile nregistrate
de bnci diferite care acioneaz pe aceeai pia pot s indice existena unui comportament
anticoncurenial.
De asemenea, se poate compara nivelul ROA/ROE pentru bnci cu o poziie consolidat (bnci
mari) cu nivelul nregistrat de bnci nou-intrate n pia (de obicei, bnci de talie mic). n
graficele de mai jos se red nivelul ROA/ROE pentru primele 5 bnci de pe piaa romneasc,
n ordinea mrimii activelor, precum i pentru 5 bnci mici, care au raportat rezultate pentru
anul 2010.
Valorile ROA / ROE nregistreaz variaii semnificative n perioada analizat ca urmare a crizei
financiare internaionale, criz care a afectat masiv piaa creditului i a crescut costurile de
finanare ale instituiilor de credit. Se observ meninerea n plafonul superior a valorilor ROA
pentru Banca Comercial Romn (BCR), respectiv BRD Societe Generale (BRD), acestea
fiind cele mai mari bnci romneti n funcie de activele totale. Acest situaie poate indica
o putere sporit de pia ale acestor dou instituii. Puterea de pia poate fi rezultatul unei
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2011
of certain aggregated indicators, not delimited over a strictly defined relevant product market.
In addition, it appears that the market of the credits intended for the undertakings is more
concentrated relative to the consumer credit market or the deposit market.
Table no. 3. Concentration indicators for the Romanian banking sector
Total assets
Credits for
undertakings*
Consumer credits -
for households *
Deposits
CR6 0.64 0.85 0.78 0.66
CR12 0.89 0.98 0.96 0.89
HHI 1052.91 1803 1438.04 637.08
*The calculations have envisaged only the data published by the 2010 Annual Reports of the banks.
The calculated value of 0.67 for the Panzar-Rosse statistics indicates the existence of a competitive
market, below the level of the competition recorded on the banking markets of the developed
countries (Austria, France, Portugal), but slightly superior to the value recorded in Germany.
Table no. 4. Estimated values of the Panzar-Rosse index (H Statistic)
Romania* Austria** France** Germany** Portugal**
0.67 0.87 0.70 0.60 0.83
* own calculations; ** Bikker J. and Haaf, K. Competition, concentration and their relationship: An empirical
analysis of the banking industry, Journal of Banking & Finance, vol. 26(11), pages 2191-2214.
Evolution of the profitability indicators (Return on assets/Return on equity)
For the banking sector, ROA records lower values compared with other industries, partially
because of the competitive environment, and partially due to the fact that banks are
undertakings with significant attracted financial resources.
The competition authority is paying attention to the evolution over the time of these
economic indicators because a prominent ascending trend or a significant gap between
the levels recorded by different banks activating on the same market can signal an
anticompetitive behaviour.
In addition, the ROA/ROE value of the consolidated banks large banks) may be compared
to the value recorded by the banks newly entered on the market (usually, small banks).
The charts below present the ROA/ROE level both for the first 5 banks on the Romanian
market, ranked by the volume of their assets, and for the smallest 5 banks that have
reported results in 2010.
ROA/ROE values record significant fluctuations in the analysed period due to the
international financial crisis that has massively affected the credit market and that has
increased the financing costs of the credit institutions. It can be noticed that the largest
Romanian banks in terms of total assets, namely the Romanian Commercial Bank (BCR)
and BRD Societe Generale (BRD), have maintained superior ROA values. This situation
may indicate a superior market power of these institutions. Market power can be the result
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2011
concurene reduse, dar poate avea la baz i ali factori, precum eficiena crescut sau
economii de scar manifestate la nivelul industriei bancare.
Graficul nr. 1. Evoluia ROA pentru 5 bnci de talie mare de pe piaa romneasc
Sursa: Rapoartele Anuale ale bncilor.
Graficul nr. 2. Evoluia ROE pentru 5 bnci de talie mare de pe piaa romneasc
La fel ca i pentru bncile de talie mare, indicatorii ROA / ROE pentru bncile de talie mic
au o evoluie oscilant, puternic influenat de criza financiar i de evoluia economiei
romneti. Spre deosebire de bncile mari, dispersia valorilor nregistrate este mai mic, iar
ulterior crizei financiare, indicatorii ROA / ROE pentru bncile mici au trecut n teritoriu
negativ. Aceast evoluie nu este surprinztoare, ns poate ridica ntrebri cu privire la
poteniale practici de excludere, ale cror efecte au fost exacerbate datorit crizei financiare.
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2011
of reduced competition, but it can also be generated by other factors, such as the increased
efficiency or economies of scale recorded by the banking industry.
Graph no. 1. ROA evolution for 5 large-sized banks on the Romanian market
Source: Banks Annual Reports.
Graph no. 2. ROE evolution for 5 large-sized banks on the Romanian market
As in the case of the large-sized banks, ROA/ROE values for the small banks have had a
fluctuant evolution, powerfully influenced by the financial crisis and the evolution of the
Romanian economy. Unlike the large banks, the dispersion of the recorded values is lower,
and after the financial crisis, ROA/ROE indexes have registered negative values. This is not
a surprising evolution, but it can raise questions on the potential exclusionary practices,
whose effects have been exacerbated due to the financial crisis.
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2011
Graficul nr. 3. Evoluia ROE pentru 5 bnci de talie mic de pe piaa romneasc
Graficul nr. 4. Evoluia ROE pentru 5 bnci de talie mic de pe piaa romneasc
Indicatorii diferenialului de dobnd la credite acordate / depozite atrase.
Comparaie cu rile din regiune
O component important din bilanul unei bnci o reprezint veniturile din dobnzi la credite.
Dobnda reprezint preul de utilizare al banilor, ns este un indicator complex, care include
pe lng costul de oportunitate al banilor i riscul personal al debitorului mprumutat, riscul
de ar i marja de profit operaional a bncii. Marja de profit este legat de puterea de pia
a bncii i ne ateptm s observm dobnzi mai mari pe pieele concentrate sau
neconcureniale. Diferenialul dintre dobnda la depozitele rezidenilor i dobnda perceput
pentru credite este un indicator relevant, deoarece exclude riscul specific de ar, precum
i riscul individual, fiind un indicator agregat (medie).
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2011
Graph no. 3. ROE evolution for 5 small banks on the Romanian market
Graph no. 4. ROA evolution for 5 small banks on the Romanian market
Interest differential indexes for the credits granted/new deposits.
Comparison with other countries in the region
Interest revenues earned by a bank from the credits granted are an important component
of a bank balance sheet. The interest is the price to pay for using someone elses money,
but it is a complex index, including alongside the money opportunity cost, the individual
risk of the credited debtor, the country risk and the banks operational profit margin. The
profit margin is related to the market power of the bank and one would expect to find
larger interests on concentrated or non-competitive markets. The differential between the
interest of the residents deposits and the one for credits is a relevant aggregated indicator
(average), because it excludes the specific country risk, as well as the individual risk.
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2011
n seciunea de mai jos prezentm evoluia diferenialului de dobnd pentru Romnia i alte
ri din regiune.
Tabelulul nr. 5. Dobnzi medii la credite i depozite n EURO
Ian 2007- Mai 2011 Romnia Ungaria Austria Cehia Polonia
Dobnda Medie Depozite (%) 3,94 3,23 2,59 1,89 2,44
Dobnda medie credite imobiliare (%) 7,59 6,36 4,25 5,08 5,39
Dobnda medie credite de consum* (%) 10,59 8,38 5,66 15,16 7,08
Dobnzile se refer la credite imobiliare cu durata mai mare de 5 ani; credite de consum cu durata 1 5 ani;
depozite cu durata pn la un an; pentru Cehia, procentele se refer la depozite i credite n CHZ; *se refer att
la credite garantate ipotecar, ct i la credite negarantate.
Sursa datelor: Bancile Centrale din rile respective.
Graficul nr. 5. Diferenialul de dobnd depozite-credite imobiliare
pentru 5 ri central-est europene (EUR)
Sursa datelor: Bancile Centrale din rile respective. Dobnzile sunt calculate pentru depozite n EUR cu maturitate
pn la 1 an, credite imobiliare n EUR cu maturitate pn la 30 de ani. Valorile pentru Cehia sunt exprimate la
depozite / credite n moned naional (CHZ).
Se observ o tendin de convergen a diferenialului dintre dobnda la depozite i dobnda
la creditele imobiliare din cele cinci ri, pentru perioada analizat. Criza din 2008 a afectat
semnificativ procesul de de convergen. Romnia rmne ara cu diferena cea mai mare
(seria corespunztoare Cehiei se refer la valori pentru CHZ), aceasta indicnd o pia mai
puin consolidat, cu un nivel concurenial mai sczut dect cel al rilor din eantion, pentru
perioada menionat. Diferena de dobnd nregistreaz totui un trend (linear)
descresctor, aceasta indicnd o intensificare a concurenei pe piaa bancar din
Romnia.
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2011
The next section presents the evolution of the interest differential for Romania and other
countries in the region.
Table no. 5. Average credit and deposit interests (EUR)
Jan 2007- May2011 Romania Hungary Austria Czech Republic Poland
Deposit average interest (%) 3.94 3.23 2.59 1.89 2.44
Real estate credit average interest (%) 7.59 6.36 4.25 5.08 5.39
Consumer credit average interest (%) 10.59 8.38 5.66 15.16 7.08
Interests envisage real estate credits longer than 5 years; consumer credits of 1 to 5 years; maximum 1 year
deposits; for the Czech Republic, the percentages envisage the CHZ credits too; *it includes the mortgage and
non-mortgage credits.
Source: Central Banks of the respective countries.
Graph no. 5. Interest differential deposits-real estate credits
for 5 Central and Eastern European countries (EUR)
Source: Central Banks of the respective countries. Interests are calculated for maximum 1 year deposits in
EUR, maximum 30 years real estate credits. For the Czech Republic, the values of the deposits/credits are
expressed in the national currency (CHZ).
In the analysed period, the differential between the deposits interest and the real
estate credits interest from the five countries has a convergence trend. The 2008
crisis has affected significantly the convergence process. In the analysed period,
Romania remains the country with the largest difference (the Czech Republic data
range expresses CHZ values), indicating a less consolidated market, with lower
competition than the countries included in the sample. However, the interest
difference records a decreasing trend (linear), suggesting an intensified
competition on the Romanian banking market.
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2011
Graficul nr. 6. Diferenialul de dobnd depozite - credite de consum
pentru 5 ri central-est europene (EUR)
Sursa datelor: Bancile Centrale din rile respective. Dobnzile sunt calculate pentru depozite n EUR cu scadena
pn la 1 an, credite imobiliare n EUR cu scadena pn la 30 de ani. Valorile pentru Cehia sunt exprimate la
depozite / credite n moned naional (CHZ).
La fel ca i diferenialul de dobnd depozite / credite imobiliare, diferena dintre dobnda
la depozite i credite de consum are o tendin descresctoare n industria bancar
romneasc, pstrandu-se totui la limita superioar a valorilor nregistrate pentru rile
analizate. Concluzia este c i pe piaa creditelor de consum din Romnia se manifest
o concuren n cretere, dei nu se atinge nivelul de concuren de pe alte piee
regionale.
Trebuie avut n vedere c diferena de dobnd analizat este influenat i de ali factori
importani, cum ar fi rata rezervelor minime obligatorii, rata dobnzii de politic monetar
etc., ns tendina de evoluie este un indicator important n aprecierea intensitii
concurenei din sectorul bancar.
Concluzii asupra nivelului concurenei pe piaa bancar
Indicatorii analizai indic o evoluie favorabil din punct de vedere concurenial n sectorul
bancar romnesc. Se constat o tendin de reducere a diferenialului de dobnd credite /
depozite. Indicii de concentrare arat o distribuie concurenial a cotelor de pia, cu
excepia pieei creditului ctre ntreprinderi, unde se manifest un grad relativ ridicat de
concentrare. Cu toate acestea, n profil regional sunt semnale c sectorul bancar romnesc
este mai puin competitiv dect sectoarele similare din rile din regiune. Valoarea calculat
de 0,67 pentru statistica Panzar-Rosse indic o pia concurenial, ns sub nivelul
concurenei manifestate pe pieelor bancare din rile dezvoltate (Austria, Frana, Portugalia),
dar uor superioar valorii nregistrate pentru Germania.
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2011
Graph no. 6. Interest differential deposits consumer credits
for 5 Central and Eastern European countries (EUR)
Source: Central Banks of the respective countries. Interests are calculated for maximum 1 year deposits in
EUR, maximum 30 years real estate credits. For the Czech Republic, the values of the deposits/credits are
expressed in the national currency (CHZ).
As in the case of the deposits/real estate interest differential, the difference between the
deposit interests and the consumer credit interests has a decreasing trend in the
Romanian banking industry. However, this trend is maintained at the superior limit of the
values recorded in the analysed countries. It can be concluded that competition is also
rising on the Romanian consumer credit market, although it does not attain the competition
level recorded on other regional markets.
We must take into consideration that the analysed interest difference is also influenced by
other important factors, such as the mandatory minimum reserves rate, the monetary
interest rate etc. However, the evolution trend is an important indicator for measuring
the competition intensity in the banking system.
Conclusions regarding the degree of competition in the banking market
The analysed indicators show a positive trend of the competition in the Romanian banking
sector. The credits/deposits interest differential has a decreasing trend. Concentration
indexes indicate a competitive distribution of the market shares, but for the credit market
for undertakings, which has a relative high concentration level. However, at the regional
level, there are signals that the Romanian banking system is less competitive than the
similar sectors of the countries in the region. The 0.67 value of the Panzar-Rosse statistic
(a low value) indicates a competitive markets, below the level of competition in the banking
markets of the developed countries (Austria, France, Portugal), but slightly superior to the
value recorded in Germany.
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B. INDICATORI PRIVIND SECTORUL FARMACEUTIC
Sistemul sanitar este unul esenial pentru orice stat din lume. n cadrul acestuia, un loc
aparte l ocup sectorul distribuiei de medicamente.
Pentru a vorbi despre situaia concurenei pe o anumit pia trebuie mai nti definit aceast
pia. n ceea ce privete piaa produselor medicamentoase, n cazurile de concuren se utilizeaz
ca punct de plecare n definirea pieei relevante clasa ATC3. Sistemul Anatomico-Terapeutic-Clinic
(ATC) este organizat ierarhic i cuprinde cinci niveluri (nivelul 5 este cel mai detaliat).
Deoarece scopul nostru este realizarea unei analize de ansamblu a acestei piee, nu vom
recurge la utilizarea sistemului ATC, ci vom considera urmtoarele trei piee (sau altfel spus
segmente ale pieei farmaceutice):
piaa produciei de medicamente (aceasta cuprinde productorii prezeni pe piaa
romneasc, indiferent dac medicamentele sunt produse n Romnia sau sunt importate);
piaa distribuiei angro de medicamente;
piaa distribuiei cu amnuntul de medicamente (reprezentat de farmacii, spitale etc.).
Din punct de vedere al cererii, distribuia de medicamente cuprinde trei mari categorii de
clieni (cifrele reprezint ponderea vnzrilor ctre clienii respectivi n total distribuie
medicamente, la nivelul anului 2009):
farmacii (vnzri cu amnuntul) 93,5%;
spitale 6,5%;
vnzri ctre ali distribuitori neglijabil.
Ca urmare a celor de mai sus, analiza de fa va cuprinde pentru piaa distribuiei angro de
medicamente doar segmentul vnzrilor ctre farmacii.
Att pe segmentul de producie al medicamentelor ct i pe segmentul distribuiei angro de
medicamente, piaa farmaceutic este una naional din punct de vedere al principiilor de
concuren. Pe segmentul distribuiei cu amnuntul, piaa farmaceutic este local.
Numrul de ageni de pe pia
Din acest punct de vedere se poate afirma c piaa farmaceutic romneasc este una dezvoltat.
Primii 20 de productori prezeni pe piaa romneasc nsumau n anul 2009 o cot de pia
de 77,80%, respectiv 77,20% n anul 2010.
n prezent, pe piaa distribuiei angro de medicamente au fost autorizate s funcioneze 350
de uniti de distribuie angro. Avnd n vedere c n general fiecare distribuitor deine mai
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2011
B. INDICATORS FOR THE PHARMACEUTICAL SECTOR
The health system is essential for all the countries. Drug distribution plays an important
role in this system.
In order to assess the degree of competition in a certain market, we must define it first.
In the antitrust analysis of the drug markets, the definition of the relevant market starts
from the ATC3 class. The Anatomical Therapeutic Chemical Classification System (ATC) has
a hierarchy-based structure and includes five levels (the 5
th
level is the most detailed).
Because the aim is to make a general analysis of this market, the ATC system will not be
used, and the following three markets will be considered (or, in other words, drug market
segments):
drug production market (including the producers active in the Romanian market,
irrespective whether the drugs are produced in Romania or they are imported);
drug wholesale market;
drug retail market (including pharmacies, hospitals etc.).
From the demand perspective, drug distribution includes three large categories of clients
(the figures express the weight of the sales to the respective clients in the total drug
distribution in 2009):
pharmacies (retail sales) 93.5%;
hospitals 6.5%;
sales to other distributors negligible.
According to the above mentioned figures, the current analysis will include only the sales
to the pharmacies segment within the drug wholesale market.
Market area
According to the competition principles, the market is national for the drug production
segment as well as for the drug wholesale segment. As regards the retail distribution, the
market is local.
From this perspective, the Romanian drug market is a developed one.
The first 20 producers on the Romanian market had together a total market share of
77.80% in 2009, and of 77.20% in 2010.
At present, 350 wholesale units are authorised to activate on the drug wholesale
market. Each distributor has several warehouses, meaning that a lower number of
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2011
multe depozite, pe aceast pia activeaz un numr mult mai restrns de ntreprinderi. Cei
mai mari 29 de distribuitori controleaz 95% din pia.
La finalul anului 2010, potrivit Ministerului Sntii pe piaa romneasc activau 6708
farmacii cu circuit deschis. La acestea se adaug farmaciile ce funcioneaz n cadrul
spitalelor, precum i ntreprinderile ce comercializeaz medicamente OTC.
Valoarea pieei
n anul 2009, valoarea total a vnzrilor de medicamente din Romnia a fost de 8,1 miliarde
lei, de aproximativ patru ori mai mare dect valoarea nregistrat n anul 2000.
Potrivit Business Monitor International, valoarea medicamentelor cu prescripie i OTC
vndute n anul 2010 prin intermediul farmaciilor i spitalelor a fost de 11,9 miliarde lei.
Din punct de vedere al valorii medicamentelor vndute, piaa farmaceutic din Romnia este
o pia n dezvoltare, nregistrnd creteri anuale de peste 10% ncepnd cu anul 2007.
Numrul de produse din pia
Pe piaa romneasc exist un numr de aproximativ 7000 de medicamente, dar cele mai vndute
50 de medicamente reprezint aproximativ 40% din valoarea total a medicamentelor vndute.
Prin urmare, piaa medicamentelor din Romnia este una dezvoltat, dar cu un grad ridicat
de concentrare.
Rata de concentrare (Concentration Ratio CR)
Piaa productorilor de medicamente:
2009: CR
4
= 32%; CR
8
= 51,8%; CR
20
= 77,5%
Se observ c este o pia mediu concentrat, cea mai mare cot de pia fiind de 10%.
2010: CR
4
= 32,2%; CR
8
= 51,8%; CR
20
= 77,2%
Se observ c este o pia mediu concentrat, a crei structur a rmas neschimbat (cu
excepia unor modificri a poziiei n top 20).
Piaa distribuiei angro de medicamente (2009):
CR
4
= 48%; CR
10
= 82%
Se observ c este o pia mediu concentrat, cea mai mare cot de pia fiind de 19,3%.
Indicele Herfindahl-Hirschman (Herfindahl-Hirschman Index HHI)
Att pentru piaa produciei de medicamente ct i pentru piaa distribuiei angro de medicamente,
valoarea indicelui Herfindahl-Hirschman relev un grad redus de concentrare a pieei.
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2011
undertakings are activating on this market. The largest 29 distributors control 95%
of the market.
According to the Ministry of Health, at the end of 2010, 6,708 open circuit pharmacies
were active on the Romanian market. In addition, there are the pharmacies functioning
within the hospitals, as well as the undertakings commercialising OTC drugs.
Market value
In 2009, the total value of the drug sales in Romania was of RON 8.1 billion, of around four
times larger than the 2000 value.
According to the International Business Monitor, the value of the prescription drugs and of
the OTC drugs sold in 2010 through pharmacies and hospitals was of RON 11.9 billion.
In terms of the value of the sold drugs, the Romanian pharmaceutical market is growing;
starting with 2007, it records annual increases of over 10%.
Number of market products
Around 7,000 drugs are present on the Romanian market, but the most sold 50 drugs
represent around 40% of the total sold drugs.
As a result, the Romanian drug market is a developed one, but with a high concentration
level.
Drug production market:
2009: CR
4
= 32%; CR
8
= 51.8%; CR
20
= 77.5%
This is a medium concentrated market, the largest market share being of 10%.
2010: CR
4
= 32.2%; CR
8
= 51.8%; CR
20
= 77.2%
This is a medium concentrated market, with an unchanged structure (with the exception
of certain modifications of the top 20 ranks).
Wholesale drug market (2009):
CR
4
= 48%; CR
10
= 82%
This a medium concentrated market, the largest market share being of 19.3%.
The HHI value indicates a low concentration level of the drug production market, as well
as of the drug wholesale market.
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2011
Pentru piaa produciei de medicamente HHI < 500, att pentru anul 2009 ct i pentru anul 2010.
Pentru piaa distribuiei angro de medicamente HHI < 950 pentru anul 2009.
Totui, ca i n cazul ratei de concentrare (unde valoarea CR
20
pentru piaa produciei de
medicamente este inferioar valorii CR
10
pentru piaa distribuiei angro), i n cazul HHI se
observ c piaa distribuiei angro este mai concentrat dect cea a produciei de
medicamente (valoarea HHI pentru piaa distribuiei angro este de aproximativ dou ori mai
mare dect valoarea HHI pentru piaa produciei de medicamente).
Indicele Hall-Tideman (Hall-Tideman - HTI)
Valoarea acestui indicator este de aproximativ 0,10 pentru piaa produciei de medicamente,
respectiv 0,17 pentru piaa distribuiei angro de medicamente i denot un grad redus de
concentrare al acestor piee.
Gradul de propensiune pentru medicamente generice/inovative
O caracteristic extrem de important a oricrui sistem de sntate este sustenabilitatea.
Pentru aceasta trebuie ca nevoile pacienilor s fie atent echilibrate cu resursele disbonibile.
Realizarea de comparaii ntre diferite state este dificil, deoarece diferenele privind politica
de sntate dau natere unor sisteme diferite. Cu toate acestea, un element comun care
este adesea utilizat n astfel de comparaii este costul generat de consumul medicamentelor.
Potrivit IMS Health
14
, costul cu medicamentele reprezint aproximativ 10% din cheltuielile
unui sistem de sntate, iar n cadrul acestora costul medicamentelor generice reprezint
18% (dei consumul acestora depete 50% din consumul de medicamente).
Din analiza datelor
15
privind consumul de medicamente n Romnia n anul 2010,
medicamentele generice reprezint 60% din volumul medicamentelor cu prescripie i 32,4%
din valoarea acestora:
Graficul nr. 7. Consumul de medicamente
cu prescripie n 2010 (volum)
Graficul nr. 8. Consumul de medicamente
cu prescripie n 2010 (valoare)
Sursa datelor: CEGEDIM. Sursa datelor: CGEDIM.
14 Intercontinental Marketing Services Health. http://www.imshealth.com/imshealth/Global/Content/Document/Market_
Measurement_TL/Generic_Medicines_GA.pdf .
15 Sursa datelor raport CEGEDIM.
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2011
For the drug production market, HHI < 500, for 2009 as well as for 2010.
For the drug wholesale market, HHI < 950 for 2009.
However, as in the case of the concentration ratio (where the value of CR
20
for the drug
production market is inferior to the value of CR
10
for the drug wholesale market), HHI
indicates that the drug wholesale market is more concentrated than the drug production
market (the value of HHI for the drug wholesale market is around two times larger than
the value of the HHI for the drug production market).
The value of this indicator is around 0.10 for the drug production market, and 0.17
for the drug wholesale market, suggesting a low level of concentration of these
markets.
The level of propensity towards generic/innovative drugs
Sustainability is an extremely important characteristic of every health system. For this
reason, the patients needs must be carefully balanced against the available resources.
Comparing the situation from different countries is difficult, because the different health
policies generate distinct health systems. However, a common element often used in such
comparisons is the cost related to the consumption of drugs.
According to IMS Health
14
, the cost generated by the drug consumption is around 10% of
the expenses of a health system. 18% of this cost is represented by the cost of the generic
drugs (although their consumption overcomes 50% of the total drug consumption).
The analysis of the data
15
on the Romanian drug consumption in 2010 reveals that
generic drugs represent 60% of the prescription drugs volume and 32.4% of their
value:
Graph no. 7. Consumption of prescrisption
drugs in 2010 (volume)
Graph no. 8. Consumption of prescrisption
drugs in 2010 (value)
Source: CEGEDIM. Source: CEGEDIM.
14 Intercontinental Marketing Services Health. http://www.imshealth.com/imshealth/Global/Content/Document/Market_
Measurement_TL/Generic_Medicines_GA.pdf .
15 Source of the data CEGEDIM Report.
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2011
Medicamentele inovative sunt mai eficiente (medicamente de ultim generaie), dar n acelai
timp sunt i cele mai scumpe. n acelai timp, piaa medicamentelor inovative este de tip
monopol. Din cele prezentate mai sus rezult faptul c din punct de vedere al gradului de
propensiune pentru medicamente generice/inovative, gradul de concuren pe piaa
farmaceutic romneasc este unul ridicat.
Formarea preului pe piaa farmaceutic romneasc
Formarea preului pentru medicamentele de uz uman este reglementat de Normele din 30
ianuarie 2009 privind modul de calcul al preurilor la medicamentele de uz uman, modificate
de Ordinul Ministrului Sntii nr. 1637/2009 i Ordinul Ministrului Sntii nr. 220/2010.
n funcie de segmentul de pia farmaceutic se disting trei categorii de pre:
pre de productor (PP) pe segmentul produciei de medicamente;
pre cu ridicata (PR) pe segmentul distribuiei angro;
pre cu amnuntul (PA) pe segmentul distribuiei cu amnuntul.
Preul de productor este propus n lei de deintorul autorizaiei de punere pe pia (APP) sau
de reprezentantul acestuia. El trebuie s fie mai mic sau cel mult egal cu cel mai mic pre
al aceluiai medicament dintr-o list de 12 ri publicat de Ministerul Sntii.
Adaosul comercial pentru distribuia angro se calculeaz asupra preului de productor:
Tabelul nr. 6. Modul de calcul al adaosului comercial pentru distribuia angro
Nivelul valoric al preului de productor (lei) Cota maxim de adaos pentru distribuia angro
0-50,00 14%
peste 50,00-100,00 12%
Peste 100,00-300,00 10%
Peste 300,00 30,00 lei
Sursa: Normele privind modul de calcul al preurilor la medicamentele de uz uman, aprobate prin Ordinul
ministrului sntii nr. 75/2009.
Adaosul comercial practicat de farmacii pentru medicamentele de uz uman se calculeaz
asupra preului cu ridicata:
Tabelul nr. 7. Modul de calcul al adaosului comercial practicat de farmacii pentru
medicamentele de uz uman
Nivelul valoric al preului cu ridicata (lei) Cota maxim de adaos comercial maxim n farmacii
0-25,00 24%
Peste 25,00 50,00 20%
Peste 50,00-100,00 16%
Peste 100,00-300,00 12%
Peste 300,00 35,00 lei
Sursa: Normele privind modul de calcul al preurilor la medicamentele de uz uman, aprobate prin Ordinul
ministrului sntii nr. 75/2009.
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2011
I nnovati ve drugs are more effi ci ent (l atest generati on drugs), but at the same
ti me they are the most expensi ve. The i nnovati ve drug market i s a monopol y.
The above menti oned data reveal s that, consi deri ng the propensi ty l evel
towards generic/innovative drugs, the level of competition on the Romanian
drug market is high.
Price setting on the Romanian drug market
The price setting of the drugs for human use is regulated by the Norms of 30 January 2009
on the calculation of the prices of the drugs for human use, amended by Orders of the
Ministry of Health no. 1637/2009 and no. 220/2010.
Three price categories can be identified based on the drug market segment:
producer price (PP) on the drug production segment;
wholesale price (WP) on the drug wholesale segment;
retail price (RP) on the drug retail segment.
Producer price is proposed in RON by the holder of the market authorisation (MA) or by its
representative. The price must be lower or at most equal to the lowest price of the
same drug from a list of 12 countries published by the Ministry of Health.
The wholesale mark-up is calculated starting from the producer price:
Table no. 6. Calculation of the wholesale mark-up
Producer price level (RON) Maximum wholesale mark-up
0-50.00 14%
over 50.00-100.00 12%
over 100.00-300.00 10%
over 300.00 30.00 RON
Source: Norms on the calculation of the prices of the drugs for human use, approved by Order of
the Ministry of Health no.75/2009.
The mark-up of the pharmacies for the human-use drugs is calculated starting from the
wholesale price:
Table no. 7. Calculation of the pharmacies mark-up for the
human-use drugs
Wholesale price level (RON) Maximum mark-up of the pharmacies
0-25.00 24%
over 25.00 50.00 20%
over 50.00-100.00 16%
over 100.00-300.00 12%
over 300.00 35,00 RON
Source: Norms on the calculation of the prices of the drugs for human use, approved by Order of the Ministry
of Health no.75/2009.
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2011
Graficul nr. 9. Total adaos (n valoare absolut) pentru medicamentele de uz uman
fa de preul de productor
Sursa: Calculaii pe baza Normelor privind modul de calcul al preurilor la medicamentele de uz uman,
aprobate prin Ordinul ministrului sntii nr. 75/2009.
O alt diferen n preul medicamentelor este dat de tipul acestora: inovative sau generice.
Preul de referin pentru medicamentele generice este echivalent cu maximum 65% din
preul medicamentului inovativ al crui generic este. De asemenea, el trebuie s fie mai
mic sau cel mult egal cu cel mai mic pre al aceluiai medicament dintr-o list de 12
ri publicat de Ministerul Sntii.
n cadrul celor mai vndute 50 de medicamente din Romnia, se regsesc n principal
medicamente inovative (42) i un numr redus de medicamente generice (8).
Concluzii asupra nivelului concurenei pe piaa farmaceutic
Pentru a avea un sistem de sntate sustenabil, fiecare ar ncearc s balanseze cheltuielile
generate de funcionarea sistemului i veniturile disponibile. Pentru aceasta, se urmrete
n general reducerea cheltuielilor cu medicamentele. O soluie ar fi creterea consumului
de medicamente generice (atunci cnd acestea corespund nevoilor pacienilor) n
detrimentul medicamentelor inovative (care sunt mai scumpe).
ncepnd cu anul 2010, prescrierea medicamentelor de care beneficiaz asiguraii n cadrul
sistemului de asigurri de sntate se realizeaz pe denumire comun internaional (DCI)
i nu pe denumire comercial
16
. Aceast msur ar trebui s aib ca efect creterea
consumului de medicamente generice i reducerea celui de medicamente inovative (mai
scumpe). Totui, pentru obinerea unui efect semnificativ, ea trebuie corelat cu o mai bun
co-interesare a farmaciilor de a elibera medicamente generice atunci cnd DCI o permite.
16 Ca excepie, prescrierea medicamentelor n ambulatoriu se face utilizndu-se denumirea comun internaional, n afara
cazurilor justificate medical n fia medical a pacientului, cnd prescrierea se face pe denumire comercial.
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2011
Graph no. 9. Total mark-up (in absolute value) of the human-use drugs compared
to the producer price
Source: Calculations based on the Norms on the calculation of the prices of the drugs for human use, approved
by Order of the Ministry of Health no.75/2009.
Another difference in the price of the drugs is generated by their type: innovative or generic.
The reference price for generics is equivalent to maximum 65% of the innovative drug
price related to it. Moreover, the reference price for generics must be smaller or at most
equal to the smallest price of the same drug from a list of 12 countries published by
the Ministry of Health.
The top of the 50 most sold drugs in Romania includes mainly innovative drugs (42) and
a reduced number of generic drugs (8).
Conclusions on the competition on the drug market
For attaining a sustainable health system, every country must try to equilibrate the expenses
related to the system functioning with the available incomes. In general, this requires the
reduction of the drug expenses. A solution would be to increase the consumption of
generic drugs (when they can satisfy the needs of the patients) in the detriment of the
innovative drugs (which are more expensive).
Starting with 2010, the prescription of the drugs in the benefit of the persons that are part
of the health insurance system is made based on the International Common Name (ICN),
not on the commercial name
16
. This measure should have the effect of increasing the
consumption of generic drugs and of reducing the consumption of innovative drugs (more
expensive drugs). However, for achieving a significant effect, it must be correlated with an
increased awareness of the pharmacies to release generic drugs, when ICN allows it.
16 With the exception of the cases justified in the medical chart of the patient, when the prescription is made based on the
commercial name.
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2011
Ca urmare a metodologiei de stabilire a preurilor medicamentelor (acestea sunt preuri reglementate),
Romnia se situeaz printre statele europene cu cele mai mici preuri pentru consumatorul final.
n condiiile unei globalizri economice, reducerea cheltuielilor cu medicamentele devine n
principal o problem ce transcede posibilitile unui singur stat. Se poate totui ncuraja
consumul de medicamente generice i concurena ntre productorii acestora.
Trebuie totui s avem n vedere faptul c aceast concuren trebuie s se manifeste la
nivelul fiecrei piee relevante (definite n funcie de substituibilitatea funcional a
medicamentelor), care de cele mai multe ori se definte la nivel ATC3 sau ATC4.
C. INDICATORI PRIVIND SECTORUL LUCRRILOR DE CONSTRUCII DE DRUMURI
DIN ROMNIA
Piaa lucrrilor de construcii de drumuri i autostrzi este o pia dispersat, n care activeaz
foarte muli ageni economici, cea mai mare cot de pia situndu-se n jurul valorii de 6%.
Modernizarea infrastructurii romneti la standardele europene reprezint una dintre
prioritile naionale pentru perioada urmtoare. Piaa lucrrilor de construcii de drumuri i
autostrzi este o pia n plin dezvoltare, date fiind proiectele de realizare a peste 500 km
de autostrad pn n 2013, de reabilitare a aproape 900 km de drumuri naionale i de
realizare a 10.000 km drumuri judeene i de interes local pna n anul 2020. ntruct pentru
proiectele de infrastructur sunt alocate sume din bugetul naional sau pot fi atrase fonduri
europene pentru finanare, piaa lucrrilor de construcii de drumuri este mai puin afectat
de criz dect piaa lucrrilor de construcii civile.
Dat fiind faptul c lucrrile de construcii se contracteaz prin licitaii publice, structura pieei se
modific de la un an la altul, n funcie de contractele de lucrri atribuite i de lucrrile executate. n
plus, faptul c aceste lucrri se contracteaz prin licitaii impune o cercetare mai atent i din
perspectiva monitorizrii pieei sub aspectul participrii agenilor economici prezeni pe pia la licitaii.
Tabelul nr. 8. Indicatori statistici pentru transportul rutier
INDICATORUL UM 2007 2008 2009
Lungimea drumurilor publice din care: km 80893 81693 81713
- autostrzi km 281 281 321
- drumuri europene km 5983 6073 6180
Lungimea drumurilor modernizate km 22042 22865 23847
Lungimea drumurilor cu mbrcmini rutiere uoare km 21397 22561 22515
Lungimea drumurilor pietruite km 25347 24654 24115
Lungimea drumurilor de pmnt km 12107 11613 11236
Sursa: Institutul Naional de Statistic.
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2011
As a result of the price setting methodology (these are regulated prices), Romania is
situated among the European states with the smallest prices for the final consumer.
Taking into account the economic globalisation, the reduction of the drug expenses
becomes mainly an issue overcoming only one country. However, the consumption of
generic drugs and the competition between the producers of these types of drugs could
be encouraged.
Nevertheless, we must take into account that competition must be noticeable in every
relevant market (defined based on the functional substitutability of drugs), which often is
defined at the ATC3 or ATC4 level.
C. INDICATORS FOR THE ROMANIAN ROAD CONSTRUCTION SECTOR
Market area
Motorway and road construction market is a dispersed market, where many undertakings
are activating, the largest market share being around 6%.
The modernisation of the Romanian infrastructure at European standards is one of the
priorities for the next period. The motorway and road construction market is a growing market,
because of the projects concerning the construction of over 500 km of motorways until 2013,
the restoration of around 900 km of national roads and the construction of 10,000 km county
and local interest roads until 2020. Taking into account that these infrastructure projects are
financed from the national budget or from the European funds, the motorway and road
construction market is less affected by the crisis than the civil construction works market.
Construction works are contracted through public tenders, meaning that the structure of
the market changes from one year to another based on the awarded works contracts and
the finalised works. Moreover, because these works are awarded through public tenders,
it is necessary to closely monitor the market as regards the participation in tenders of the
undertakings active in the market.
Table no. 8. Statistical indicators on road infrastructure
INDICATOR MU 2007 2008 2009
Length of public roads, out of which: km 80893 81693 81713
- motorways km 281 281 321
- European roads km 5983 6073 6180
Length of modernised road km 22042 22865 23847
Length of the roads with light coating km 21397 22561 22515
Length of paved roads km 25347 24654 24115
Length of ground roads km 12107 11613 11236
Source: National Institute of Statistics.
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2011
Tabelul nr. 9. Densitatea infrastructurii de autostrad n principalele
ri din Europa de Est, n 2010
Nr. crt. ara Suprafaa mii km Nr. de km. de autostrad Nr. km/1000km
1 Cehia 78,9 727 9,2
2 Ungaria 93 696 7,5
3 Bulgaria 110,9 459 4,1
4 Polonia 312,7 837 2,7
5 Romnia 237,5 350 1,5
Sursa: www.zf.ro , www.cnadnr.ro i actualizri proprii pentru Romnia.
Dup cum se poate observa din tabelul de mai sus, Romnia se afl pe ultimul loc ntre rile
din Europa de Est, n ceea ce privete numrul de km la mia de km ptrai.
Numrul de ageni de pe pia
Din punct de vedere al ofertei, piaa lucrrilor de construcii de drumuri i autostrzi este o pia
caracterizat printr-un grad mare de dispersie, existnd un numr foarte mare de societi, att
naionale, ct i internaionale, care au ca obiect de activitate lucrrile de construcii de drumuri.
Conform informaiilor furnizate de ctre Oficiul Naional al Registrului Comerului, n Romnia activeaz
aproximativ 1550 ageni economici care au ca principal obiect de activitate lucrrile de construcii a
drumurilor i autostrzilor (cod CAEN 4211). Dei sunt foarte muli juctori pe aceast pia, numai
20 dintre acetia, conform cifrei de afaceri obinut n anul 2009, au o cot de pia de peste 1%.
Concurena n sectorul lucrrilor de construcii de drumuri
La nivelul cererii, substituibilitatea este una redus, atta timp ct cumprtorul unei lucrri
de construcii, fie c vorbim de cldiri sau de infrastructuri, caut, de regul, un anumit tip
de proiect, bine individualizat, neputnd s-l nlocuiasc cu un altul. La o cretere mic dar
semnificativ a preului, cumprtorul unei lucrri de construcii poate s-i reconsidere
anumite cerine, ns este puin probabil ca acesta s prefere un alt tip de lucrare.
Din punct de vedere al cererii, atribuirea lucrrilor aferente acestei piee se face, de
regul, prin licitaie public, organizat de autoritile publice, locale i centrale,
beneficiare ale acestor lucrri. Cu toate c lucrrile de construcii de drumuri sunt, n
principal, lucrri de interes public realizate din fonduri publice, acestea pot consta i din
lucrri de construcii de infrastructur rutier solicitate de investitori privai pentru parcuri
logistice i parcuri industriale. Specificaiile tehnice ale produselor realizate sau ale
serviciilor tehnice oferite sunt definite de clieni prin documentaiile de atribuire. De
asemenea, produsele i serviciile oferite sunt, n cea mai mare parte, autorizate i agreate
de organisme autorizate, astfel c gama produselor/serviciilor aferente acestei piee este
parial impus de clieni (autoriti publice centrale i locale, principalii ordonatori de
lucrri de infrastructur rutier).
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2011
Table no. 9. Density of the motorway infrastructure in the main
Eastern European countries in 2010
No. Country Area thousands km No. of motorway km. No. km/1000km
1 Czech Republic 78.9 727 9.2
2 Hungary 93 696 7.5
3 Bulgaria 110.9 459 4.1
4 Poland 312.7 837 2.7
5 Romania 237.5 350 1.5
Source: www.zf.ro , www.cnadnr.ro and own actualisations for Romania.
As it can be noticed from the above table, Romania is last-ranked among the Eastern
European countries in terms of the number of km per 1000 square km.
As regards the offer, the motorway and road construction market is a dispersed
market, characterised by a large number of specialised national and international
undertakings. According to the data supplied by the National Trade Register Office,
around 1550 undertakings having the main object of activity the motorway and
road construction (NACE code 4211) are active in Romania. Although there are
many players in this market, only 20 of them have had a market share of over 1%
in 2009.
Competition in the motorway and road construction sector
As regards the demand, the substitutability is reduced as long as the acquirer of a
construction work including a building or an infrastructure is looking for a certain
individualised type of project, which cannot be replaced by another. If the price increases
slightly, but significantly, the acquirer of a construction work can reconsider certain
requirements, but it is less likely for that undertaking to prefer another type of work to the
initial one.
As regards the demand, as a rule, the works specific to this market are awarded through
public tenders organised by central and local public authorities that benefit from these
works. Even if road constructions are mainly public interest works financed from public
funds, they can include road construction works requested by private investors for
industrial and logistical parks. The technical specifications of the products or of the
technical services offered are defined within the awarding documentation. Moreover,
the offered products and services are in large part authorised and agreed by the
authorised bodies, meaning that the range of the products/services in this market is
partially dictated by clients (central and local public authorities, which are the main
acquirers of road infrastructure).
138
2011
La nivelul ofertei, substituibilitatea pare a fi una semnificativ, existnd din partea companiilor
din domeniul construciilor o disponibilitate mai mare de a realiza diferite tipuri de lucrri
(cldiri, drumuri, poduri etc.).
Indicatori ai gradului de concentrare a pieei
n ceea ce privete nivelul ratei de concentrare, pentru anul 2009, se nregistreaz
urmtoarele valori:
CR
3
= 0.18 CR
4
= 0.22 CR
5
= 0,26 CR
6
= 0.29 CR
9
= 0,36 CR
20
= 0.51
Potrivit acestor valori, se poate spune c piaa lucrrilor de construcii de drumuri
prezint un nivel redus de concentrare.
Valoarea indicelui Hall-Tideman, respectiv indicelui Herfidahl-Hirschman, calculat pentru cele 1552 de
companii prezente pe piaa lucrrilor de construci de drumuri din Romnia este 0,007, respectiv 209.
Asemeni ratei de concentrare, valoarea acestor indici arat un nivel redus de concentrare a pieei.
n ceea ce privete indicele comprehensiv al concentrrii (Comprehensive Concentration
Index - CCI), valoarea sa pentru piaa romneasc de lucrri de construcii de drumuri este
de 0,1, ceea ce arat un grad redus de concentrare a pieei.
Dintre juctorii importani pe piaa lucrrilor de construcii de drumuri din Romnia, putem
meniona, ntr-o ordine arbitrar, juctori importani care, nu neaprat n aceast ordine, se
regsesc n topul profiturilor i a cotelor de pia. Acetia sunt: Spedition Umb, Tehnostrade,
Romstrade, Bechtel International i Enka Construction.
Rata rentabilitii activitii de baz (Venituri totale/Cheltuieli totale)
Tabelul nr. 10. Rata rentabilitii pentru cele mai mari 5 ntreprinderi din sector in anul 2009
Clasament firme
Venituri Totale
(mil. lei)
Cheltuieli Totale
(mil. lei)
Rata rentabilitatii*
2 657 469 1,40
1 981 740 1,32
5 610 535 1,13
3 1.443 1.283 1,12
4 652 578 1,12
*R= Venituri/Cheltuieli.
Sursa: www.mfinante.ro.
n anul 2009 valoarea a 50% din profitul realizat n sector este 727,4 milioane lei. De
asemenea, suma profiturilor primelor 5 firme din sector depete 50% din profitul total
realizat n acest sector:
139
2011
As regards the offer, the substitutability seems to be significant, because the specialised
companies dispose a greater availability to deliver different types of works (buildings, roads,
bridges etc.).
Market concentration indicators
The following values have been recorded as regards the 2009 Concentration Ratio:
CR
3
= 0.18 CR
4
= 0.22 CR
5
= 0,26 CR
6
= 0.29 CR
9
= 0,36 CR
20
= 0.51
According to these values, it can be stated that the motorway and road construction
market has a low concentration level.
The value of the Hall-Tideman Index, and of the Herfidahl-Hirschman Index, calculated for
1552 companies activating on the Romanian motorway and road construction market, is
0.007, respectively 209. Similar to the concentration ratio, the values of these indexes
indicate a low level of concentration of this market.
The value of the Comprehensive Concentration Index (CCI) for the Romanian road
construction market is of 0.1, indicating a low concentration of the market.
Important players in the Romanian road construction market are Spedition Umb,
Tehnostrade, Romstrade, Bechtel International and Enka Construction, no matter how they
are ranked in the top of the profits and of the market shares.
Core business operating income (Total revenues/total expenses)
Table no. 10. Core business operating income for the largest 5 undertakings in the
sector in 2009
Ranking of the firms
Total revenues
(million RON)
Total expenses
(million RON)
Core business operating income *
2 657 469 1.40
1 981 740 1.32
5 610 535 1.13
3 1,443 1,283 1.12
4 652 578 1.12
*R= Revenues/Expenses.
Source: www.mfinante.ro.
Market power structural indicators
In 2009, 50% of the profit recorded in the sector is RON 727.4 million. The sum of
the profits of the first 5 firms in the sector exceeds 50% of the total profit recorded in
this sector:
140
2011
Tabelul nr. 11. Profitul la nivelul primelor 5 ntreprinderi din sector
Clasament firme Profit Brut (mil. lei) % din profitul total
1 241 16,55
2 188 12,95
3 160 11,01
4 74 5,11
5 74 5,11
Total (5 firme) 737 50,72
Total (1552 firme) 1.454 100
Din acest tabel observm c cele 5 firme au mpreun peste 50% din profitul total realizat
de cele 1552 de companii de pe pia.
Pentru cele 5 firme, vom calcula i indicele de tip market power:

Cifra afaceri Cheltuieli totale
M
Cifra afaceri
=
Tabelul nr. 12. Valoarea indicatorului market-power pentru
primele 5 ntreprinderi din sector n anul 2009
Clasament firme
Cifra de afaceri2009
(mil. lei)
Cheltuieli totale 2009
(mil. lei)
M
1 1.133 1.283 -0.13
2 932 740 0.201
3 645 469 0.27
4 623 578 0.07
5 580 535 0.08
Pentru cele 5 firme reprezentative, s-a construit un tabel ce conine cifrele de afaceri obinute
n anii 2007, 2008, si 2009.
Tabelul nr. 13. Cifrele de afaceri ale primelor 5 firme din sector n perioada 2007- 2009
Clasament firme Cifra_2007 Cifra_2008 Cifra_2009
1 661 803 1.133
2 151 649 932
3 114 442 645
4 357 524 623
5 332 490 580
Total 11.120 15.130 14.938
141
2011
Table no. 11. Profit of the first 5 undertaking in the sector
Order of the firms Gross profit (million RON) % of the total profit
1 241 16.55
2 188 12.95
3 160 11.01
4 74 5.11
5 74 5.11
Total (5 firms) 737 50.72
Total (1552 firms) 1.454 100
This table indicates that the 5 firms hold over 50% of the total profit recorded by the 1.552
companies active in the market.
The market power index for the 5 firms:
exp

Turnover Total enses
M
Turnover
=
Table no. 12. Value of the market-power indicator for
the first 5 undertakings in the sector in 2009
Order of the firms
2009 turnover
(million RON)
2009 total expenses
(million RON)
M
1 1,133 1,283 -0.13
2 932 740 0.201
3 645 469 0.27
4 623 578 0.07
5 580 535 0.08
The following table contains the 2007, 2008 and 2009 turnovers for the 5 representative
firms.
Table no. 13. Turnovers of the first 5 firms in the sector during 2007- 2009
Order of the firms 2007_Turnover 2008_Turnover 2009_Turnover
1 661 803 1.133
2 151 649 932
3 114 442 645
4 357 524 623
5 332 490 580
Total 11,120 15,130 14,938
142
2011
Din tabelul de mai sus, se poate observa faptul c toate cele 5 mari companii au avut creteri
substaniale ale cifrelor de afaceri ntre anii 2007-2009.
n continuare, pentru fiecare an n parte, s-a mprit cifra de afaceri a fiecrei companii la
totalul cifrelor de afaceri obinute de cele 1552 de companii active pe pia.
Tabelul nr. 14. Evoluia cotelor de pia n perioada 2007-2009
pentru primele 5 ntreprinderi din sector
Clasament firme Cota_2007(%) Cota_2008(%) Cota_2009(%)
1 [5-6]% [5-6]% [7-8]%
2 [1-2]% [4-5]% [6-7]%
3 [1-2]% [2-3]% [4-5]%
4 [3-4]% [3-4]% [4-5]%
5 [2-3]% [3-4]% [3-4]%
Sursa: www.mfinante.ro i prelucrri proprii.
Din acest tabel se poate observa c primele cinci firme i-au consolidat poziia pe pia n
perioada 2007- 2009.
Concluzii asupra nivelului concurenei pe piaa lucrrilor de construcii de drumuri
Activitatea pe piaa lucrrilor de construcii de drumuri este sezonier. Dintre elementele
care influeneaz dinamica pieei lucrrilor de construcii de drumuri pot fi amintite, printre
altele, programele de investiii ale autoritilor contractante i disponibilitatea surselor de
finanare necesare realizrii acestora.
Piaa lucrrilor de construcii de drumuri prezint un nivel redus de concentrare, aspect
confirmat de valorile foarte mici ale indicilor calculai anterior. n schimb, indicatorii de tip
market power ne arat faptul c 50% din profitul realizat n sector este deinut de primele
cinci firme, dintr-un total de 1.552 societi active.
De asemenea, se poate observa c cele cinci firme menionate mai sus au nregistrat o
cretere substanial a profiturilor n perioada analizat, respectiv 2007-2009, trendul
meninndu-se i n ceea ce privete evoluia cotelor de pia ale acestor companii.
143
2011
The figures presented in the table above reveal that all 5 firms have recorded significant
increases of their turnovers during 2007-2009.
For each year, the turnover of each undertaking has been divided to the total turnovers of
the 1552 companies active in the market.
Table no. 14. Evolution of the market shares during 2007-2009
for the first 5 undertakings in the sector
Ranking of the firms Market share_2007(%) Market share_2008(%) Market share_2009(%)
1 [5-6]% [5-6]% [7-8]%
2 [1-2]% [4-5]% [6-7]%
3 [1-2]% [2-3]% [4-5]%
4 [3-4]% [3-4]% [4-5]%
5 [2-3]% [3-4]% [3-4]%
Source: www.mfinante.ro and own calculations.
It can be noticed that the first five firms have consolidated their market position during
2007- 2009.
Conclusions regarding the competition in the road construction market
The activity in the road construction market is seasonal. The dynamics of the motorway
and road construction market is influenced by several factors, such as the investment
programmes of the contracting authorities and the availability of the financial resources
necessary for their execution.
The road construction market displays a low level of concentration, which is confirmed by
the very low values of the indexes calculated above. On the other hand, the market power
indicators show that 50% of the profit recorded in the sector is hold by the first five firms,
of a total 1552 active undertakings.
It can also be noticed that the five firms mentioned above have registered a significant
increase of their profits in the analysed period, namely 2007-2009. They have recorded a
similar trend in respect to their market shares.
S.C. TIPOGRAFIA PROD COM S.R.L.
Trgu-Jiu, Gorj, str. Lt. Col. Dumitru Petrescu, nr.20
Tel. 0253-212.991, Fax 0253-218.343
E-mail: prodcom@intergorj.ro
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