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Las reformas a la Ley de Bolsas de Productos y Servicios y sus implicaciones desde la perspectiva de competencia

Por: Mónika Hasbún

En sesión plenaria del miércoles 3 de enero de 2018, la Asamblea Legislativa aprobó un proyecto de reformas a la Ley de Bolsas de Productos y Servicios, mediante la cual se exoneró a determinadas instituciones estatales de requerir la asistencia de los puestos de bolsa por las operaciones que necesiten realizar en las bolsas de productos y servicios. Para el caso de las respectivas instituciones estatales, las bolsas de productos y servicios serán ahora las encargadas de realizar las negociaciones por su cuenta, adquiriendo la calidad de intermediarios.

A raíz de lo anteriormente planteado surgen una serie de interrogantes: ¿Qué son las bolsas de productos y servicios? ¿Qué papel juegan los puestos de bolsa en el funcionamiento de una bolsa de productos y servicios? Y lo más importante: ¿Por qué resulta relevante esta reforma desde la perspectiva de competencia?

Las bolsas de productos y servicios son espacios que reúnen a demandantes y oferentes, con el propósito de negociar y efectuar transacciones de productos y servicios. Para esta clase de operaciones no se requiere la presencia física de los elementos a negociarse, lo cual facilita su concreción. Este sistema permite negociar productos y servicios, contratos sobre transferencia de productos y servicios, y títulos que constituyan derechos sobre los bienes, a excepción de los que se negocian en el mercado de valores. Por ejemplo, en el caso de productos agrícolas, este sistema resulta propicio para brindar una mayor facilidad y certidumbre de negociación.

Toda operación que se negocia en una bolsa de productos y servicios se realiza por medio un puesto de bolsa, quien actúa como intermediario en la negociación de productos o servicios propios o de terceros. Su función no se limita a la intermediación, sino que realizan además funciones de asesoramiento a clientes, así como de desarrollo y vigilancia del cumplimiento de los contratos derivados de las respectivas negociaciones.

El Estado, como un gran comprador de bienes y servicios a nivel nacional, ha optado por utilizar en algunas de sus adquisiciones este mecanismo, como alternativa a las formas tradicionales de contratación pública. En 2016, 24 instituciones públicas realizaron compras mediante este mecanismo. De estas las que tuvieron mayor volumen de compras fueron el Ministerio de Educación ($11.9 millones), el Instituto Salvadoreño del Seguro Social ($10.4 millones), el Ministerio de Agricultura y Ganadería ($7.3 millones) y el Instituto Salvadoreño de Formación Profesional ($4.7 millones). [1]  En 2017 las adjudicaciones realizadas por las instituciones autónomas, gobierno central, empresas públicas y municipalidades fue mayor de $716 millones.[2]

A nivel nacional, la Bolsa de Productos y Servicios de El Salvador, S.A. de C.V., Bolsa de productos y servicios (BOLPROS), es la única operante. Este aspecto es determinante para analizar las implicaciones que la reforma tiene desde la perspectiva de competencia. Así, cuando se trate de operaciones realizadas por instituciones del Estado, la reforma promueve la monopolización de las actividades de intermediación a favor de BOLPROS, como único puesto de bolsa. La rivalidad entre los diversos puestos de bolsa se elimina a favor de ella, eliminando el buen funcionamiento de la dinámica del mercado.

Al existir una única bolsa monopolizando las actividades de intermediación de determinadas instituciones del Estado, se elimina la posibilidad de los puestos de bolsa de participar en esta actividad. Por un lado, esto permite que BOLPROS reciba en exclusiva el ingreso correspondiente por las comisiones cobradas. Por el otro lado, las comisiones derivadas de la actividad de intermediación ya no están sujetas a presiones competitivas y BOLPROS tiene la posibilidad determinarla libremente. En condiciones de monopolio, lo más probable sería que estos precios no sean competitivos.

Otro aspecto a considerar es que la reforma sustrae una actividad importante de los puestos de bolsa, lo cual puede afectar la permanencia de algunos de ellos en el mercado, afectando la dinámica de la intermediación de la venta. Un menor número de agentes restringiría las presiones competitivas que ejercen los puestos de bolsa para mejorar sus ofertas en términos del servicio y las comisiones cobradas. Considerando a los puestos de bolsa como una pieza fundamental del funcionamiento de una bolsa de productos y servicios, su eliminación del mercado derivaría en menores opciones de contratación de agentes, lo cual pone en riesgo alcanzar precios competitivos y servicios de calidad.

Por último, como resultado de la reforma aprobada, la participación de BOLPROS como intermediario también puede derivar en un conflicto de intereses en la resolución de divergencias entre esta y otro puesto de bolsa rival, posicionándola como juez y parte. Esto a raíz de que BOLPROS, a través de una cámara arbitral, se encarga de conocer y resolver las divergencias en las operaciones que se suscitan entre los puestos de bolsa.

En conclusión, la exclusión de los puestos de bolsa en las actividades de intermediación de las operaciones del Estado resulta en una medida restrictiva de la competencia que permite la monopolización de esta actividad en manos del único agente operante a nivel nacional. La afectación a los puestos de bolsa, en términos de su permanencia en el mercado, el servicio que prestan y las comisiones a cobrar son aspectos que deben ser considerados en relación la medida aprobada.

El Consejo Directivo de la Superintendencia de Competencia, partiendo de las consideraciones anteriores, emitió opinión sobre las reformas realizadas a la “Ley de Bolsas de Productos y Servicios”. Esta opinión puede ser consultada en: http://www.sc.gob.sv/uploads/SC-050-S-ON-R-2017_090218_1050.pdf


  • Este artículo expresa la opinión de la autora –

 

* Abogada y Notaria, con estudios en Políticas Públicas y Derecho de Empresa. Actualmente se desempeña como Analista en la Intendencia Económica de la Superintendencia de Competencia y completó una pasantía como Investigadora en la Comisión de Competencia Suiza.

[1] Datos obtenidos de la Memoria de Labores de BOLPROS para el año 2016.

[2] Datos obtenidos del Sistema Electrónico de Compras Públicas de El Salvador.

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