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Competencia

La Abogacía de la Competencia en El Salvador

María Elena Bertrand Olano*

En El Salvador, la protección a la libertad económica y empresarial mediante la prevención y eliminación de las prácticas anticompetitivas tiene su origen en los artículos 102[1] y 110[2] de la Constitución de la República. Esta fue la base para la promulgación de la Ley de Competencia (en adelante LC) que se dio a finales del año de 2004, estableciendo que entraría en vigor a principios del año 2006 con el fin de otorgar un año para labores de divulgación de la ley para dar a conocer las prácticas que pasarían a ser prohibidas, así como el marco de conducta apropiado a seguir para no incumplirla.

Dado que esta Ley venía a transformar conductas antes consideradas legales (e incluso promovidas por ciertas normas) en prácticas anticompetitivas, era necesario hacerla del conocimiento de la población en general, y recalcar que ya que ningún sector quedaba excluido de su aplicación, todos los que intervinieran en un mercado económico, pasarían a ser sujetos ante esta ley.

Aun cuando la LC es el único cuerpo legal para la defensa de la competencia, ésta se encuentra contemplada como un principio en diferentes leyes, como la Ley de Adquisiciones y Contrataciones de la Administración Pública, la Ley General de Electricidad, y la reciente aprobada Ley Especial de Asocios Público Privados, para citar unos ejemplos.

Al entrar en vigencia la Ley de Competencia en el año 2006, inicia sus labores la Superintendencia de Competencia (en adelante SC) como institución independiente[3] y con atribuciones tanto de aplicación de ley como de abogacía de la competencia, entendiendo por “abogacía de la competencia” todas aquellas labores dirigidas a crear un entorno competitivo para las actividades económicas mediante la promoción y sensibilización sobre los beneficios de la competencia, así como la creación y fomento de una cultura de competencia en el país.

Las labores de abogacía de la competencia de la SC se encuentran en su mayoría como funciones del Superintendente, quien tiene a su cargo la coordinación del trabajo de la institución; y el resto son atribuciones del Consejo Directivo, que es la máxima autoridad de la SC y es presidido por el Superintendente.

En la SC, las que son atribuciones del Consejo Directivo las desarrolla la Intendencia Económica, y consisten en la realización de estudios sobre condiciones de competencia en sectores claves para la economía del país, la emisión de opiniones sobre proyectos normativos y sobre procesos de adquisición y contratación públicos desde la perspectiva de la competencia, de todos los cuales (tanto estudios como opiniones) pueden resultar recomendaciones de política pública para las instituciones o reguladores del sector al que atañen.

Las labores de abogacía que están a cargo del Superintendente las desarrolla la Intendencia de Abogacía de la Competencia, conformada actualmente por cinco personas (11% del personal de la institución), quienes junto al Superintendente[4] se encargan de:

  • El manejo de las relaciones interinstitucionales tanto nacionales como internacionales, siendo una de las herramientas el establecimiento y ejecución de convenios de coordinación y cooperación;
  • El desarrollo de relaciones de colaboración e intercambio de experiencias a nivel internacional, mediante la participación y representación de la SC en las redes internacionales de competencia así como ante organismos internacionales y en intercambio directo con otras homólogas;
  • El manejo de la cooperación internacional que reciba la SC para un mejor desarrollo de sus funciones;
  • Servir como enlace en los seminarios, talleres, conferencias y eventos a los que sea invitada la SC;
  • La representación de la SC en los trabajos de la integración centroamericana, así como en la Red Centroamericana de Autoridades encargadas de tema de Competencia (RECAC);
  • La representación de la SC en el mecanismo de cooperación y coordinación estratégica entre el conjunto de instituciones del Estado que entre sus atribuciones, se encuentra la de velar directa o indirectamente por los derechos de los consumidores denominado Sistema Nacional de Protección al Consumidor (SNPC);
  • La orientación básica de las consultas ciudadanas sobre la interpretación y aplicación de la LC y su reglamento, así como atender las consultas académicas y/o de investigación;
  • El desarrollo de un programa de educación en materia de competencia a través de actividades de capacitación, cursos, diplomados, producción de materiales educativos, pasantías, etc.;
  • La realización de eventos institucionales para dar a conocer el resultado y trabajo de la SC, así como esparcir el conocimiento sobre competencia;
  • El manejo del Centro de Documentación de la Superintendencia de Competencia (CENDOCSC), incluida la atención de consultas bibliográficas tanto internas como de la ciudadanía, y que consta de la colección más especializada en competencia para consulta pública a escala nacional; y
  • La participación en las discusiones y negociaciones de aquellos tratados o convenios internacionales en materia de competencia; entre otras.

Todas estas actividades buscan la creación y fomento de una cultura de competencia a escala nacional y el posicionamiento institucional en el ámbito internacional.

Dentro de las actividades de cooperación interinstitucional nacional, cabe destacar que se trabaja muy de cerca con el órgano encargado de regular las adquisiciones y contrataciones públicas[5], realizándose intensos programas de capacitación para los encargados de dicha área a nivel institucional, elaborándose además un manual especializado para la identificación posibles colusiones o manipulación de sus procesos.

Como ejemplo de éxito en estas labores de abogacía, la SC inició una investigación de oficio como resultado directo de una de las capacitaciones dadas en uno de los Ministerios, donde posterior a la capacitación, la jefe de la unidad encargada de las compras institucionales reportó haber identificado indicios de una posible manipulación en uno de sus procedimientos y solicitó la intervención por parte de la SC para investigar y eliminar dicha conducta, resultando en el primer caso sancionado por prácticas anticompetitivas manifestadas en ofertas colusorias por este tipo de práctica[6].

Respecto del programa de educación, en años recientes se han realizado diversos cursos especializados en competencia, impartidos por el personal de la SC y dirigidos al personal del órgano judicial (jueces, magistrados y colaboradores de la Corte Suprema de Justicia), Fiscalía General de la República, Asociaciones de Consumidores y profesionales en general interesados en ahondar en la materia. Además, se realizan jornadas de capacitación donde se imparte de manera comprensiva y mediante ejemplos de casos lo relacionado con la aplicación de la LC y demás productos institucionales como resultados de estudios, opiniones, etc.

Siempre como parte del programa de educación se desarrolla además de forma anual el Programa de Pasantes, donde ya sea mediante remuneración económica o por asignación de horas sociales[7] se permite a estudiantes de profesiones relacionadas con el área de competencia de las universidades que tienen acuerdo de cooperación firmado con la SC, que apoyen al personal en la realización de sus labores, permitiéndoles así un contacto directo con el quehacer institucional y un aprendizaje de manera práctica.

Otra forma efectiva de promoción de la competencia es la realización de eventos institucionales como la presentaciones de resultados de los estudios de condiciones de competencia que se realizan en diferentes sectores de la economía; la elaboración, el lanzamiento y explicación del material educativo que se elabora con el fin de aclarar conceptos teóricos y facilitar la comprensión de la materia a los diferentes públicos en la ciudadanía (académicos, profesionales, agentes económicos, abogados, etc.), como los manuales y guías institucionales; la realización anual de la ya institucionalizada Semana de la Competencia, donde convergen diversos eventos sobre diferentes áreas del Derecho de la Competencia (presentación de casos específicos, rendición de cuentas a la ciudadanía, panel fórum entre académicos y personal técnico, talleres a públicos meta, entre otros).

Financieramente hablando, de los aproximadamente $1.9 millones de dólares que recibió la SC como presupuesto para el año 2013, alrededor de un 8% fue destinado a actividades de abogacía incluyendo los estudios de condiciones de competencia, que en la mayoría de ocasiones son realizados por consultores externos.

Aún queda mucho por hacer respecto a las labores de abogacía, pero la constancia y la perseverancia de la SC en la promoción de los beneficios de la competencia lograrán que en un futuro, siendo optimistas no tan lejano, pueda afirmarse que El Salvador cuenta con una verdadera cultura de competencia.

– Los comentarios en este artículo expresan la opinión del autor –

 

*  La autora es abogado y notario, con Licenciatura en Ciencias Jurídicas de la Universidad Dr. José Matías Delgado y Máster en Derecho Financiero y Negocios de la Universidad Pontifica Bolivariana de Colombia. Cuenta con experiencia en Derecho de Propiedad Intelectual y Derecho Mercantil por haber laborado en el Registro de Comercio y en el Registro de Propiedad Intelectual del Centro Nacional de Registros. Actualmente es Encargada de Promoción de la Competencia y Participación de la Superintendencia de Competencia.

 

[1] Art. 102.- “Se garantiza la libertad económica, en lo que no se oponga al interés social.

                El Estado fomentará y protegerá la iniciativa privada dentro de las condiciones necesarias para acrecentar la riqueza nacional y para asegurar los beneficios de ésta al mayor número de habitantes del país.”

[2] Art. 110.- “No podrá autorizarse ningún monopolio sino a favor del Estado o de los Municipios, cuando el interés social lo haga imprescindible. Se podrán establecer estancos a favor del Estado.

                A fin de garantizar la libertad empresarial y proteger al consumidor, se prohíben las prácticas monopolísticas. (…)”

[3] Ley de Competencia, Art. 3, inciso primero: “Créase la Superintendencia de Competencia como una Institución de Derecho Público, con personalidad jurídica y patrimonio propio, de carácter técnico, con autonomía administrativa y presupuestaria para el ejercicio de las atribuciones y deberes que se estipulan en la presente Ley y en las demás disposiciones aplicables”.

[4] y con apoyo de la Unidad de Comunicaciones en materia de divulgación.

[5] Unidad Normativa de Adquisiciones y Contrataciones de la Administración Pública (UNAC) del Ministerio de Hacienda.

[6] Ref. SC-001-O/PA/NR-2009 – Investigación de oficio en el mercado de emisión de boletos aéreos y servicios conexos – Acuerdo entre competidores entre agencias de viajes según el Art. 25 letras a), c) y d) de la Ley de Competencia.

[7] Requisito académico universitario para la obtención de la calidad de egresado y poder optar al grado de licenciado.

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