{"id":1200,"date":"2018-05-04T18:08:23","date_gmt":"2018-05-04T23:08:23","guid":{"rendered":"https:\/\/idehpucp.pucp.edu.pe\/revista-memoria\/adendas-bajo-la-lupa\/"},"modified":"2025-04-28T01:32:52","modified_gmt":"2025-04-28T06:32:52","slug":"adendas-bajo-la-lupa","status":"publish","type":"post","link":"https:\/\/idehpucp.pucp.edu.pe\/revista-memoria\/adendas-bajo-la-lupa\/","title":{"rendered":"Adendas bajo la lupa"},"content":{"rendered":"\n

Tras las revelaciones del esc\u00e1ndalo Lava Jato, las Asociaciones P\u00fablico Privadas (APP) enfrentan un cambio en las reglas de juego. \u00bfPuede la nueva regulaci\u00f3n frenar la corrupci\u00f3n y los sobrecostos? Con el reto de la reconstrucci\u00f3n en el norte, y a seis meses de las elecciones regionales, la participaci\u00f3n ciudadana surge como opci\u00f3n de fiscalizaci\u00f3n.<\/p>\n\n\n\n

Cuando la Municipalidad de Lima anunci\u00f3<\/a> el plan original de la Plaza Nueva, la obra complementaria al by-pass de 28 de Julio, prometi\u00f3 un paisaje particularmente amigable con el medio ambiente: inclu\u00eda cerca de nueve mil metros cuadrados de \u00e1reas verdes con pasto, arbustos, enredaderas y flores. Adem\u00e1s, iba a unir dos de los parques m\u00e1s emblem\u00e1ticos de la ciudad, el Campo de Marte y el Parque de la Exposici\u00f3n, con lo cual Lima iba a tener 32 hect\u00e1reas de \u00e1reas verdes en total.  \u201cLima tendr\u00e1 un gran pulm\u00f3n verde para contrarrestar la contaminaci\u00f3n ambiental\u201d, dec\u00eda el municipio en abril del 2015.<\/p>\n\n\n\n

Tres a\u00f1os despu\u00e9s, los lime\u00f1os encontramos que la obra entregada por la gesti\u00f3n del alcalde Luis Casta\u00f1eda es, m\u00e1s bien, un amplio patio de cemento adornado con palmeras y pasto sint\u00e9tico. <\/strong><\/p>\n\n\n\n

\u00bfEn qu\u00e9 momento la promesa verde se torn\u00f3 gris? Las razones son variadas. Investigaciones period\u00edsticas denunciaron sobrecostos y acuerdos bajo la mesa entre funcionarios de la Municipalidad de Lima y la constructora brasile\u00f1a OAS previos a la firma de la adenda que abr\u00eda el camino a la construcci\u00f3n de la obra. La Defensor\u00eda del Pueblo<\/a> detect\u00f3 que tanto el by-pass como la plaza (que luego pas\u00f3 a llamarse Alameda 28 de julio) se hicieron sin estudios t\u00e9cnicos que los respalden. Contralor\u00eda tambi\u00e9n detect\u00f3 graves irregularidades<\/a>, una de ellas relacionada al cumplimiento de la normativa de las Asociaciones P\u00fablico Privadas.<\/p>\n\n\n\n

El caso del by-pass y la Plaza Nueva es uno de una larga lista de obras construidas bajo la modalidad de Asociaciones P\u00fablico Privadas (APP), relacionadas a la trama de corrupci\u00f3n con empresas brasile\u00f1as, actualmente bajo investigaci\u00f3n en el Congreso y la Fiscal\u00eda de la Naci\u00f3n. Con una cartera de APP que en febrero del 2017 contaba con proyectos por un monto de inversi\u00f3n de m\u00e1s de 11 mil millones de d\u00f3lares<\/a>, es relevante evaluar la modalidad y por qu\u00e9 se ha visto relacionada a la corrupci\u00f3n en los \u00faltimos a\u00f1os.<\/p>\n\n\n\n

En un art\u00edculo publicado en el libro \u2018Las alianzas p\u00fablico-privadas en el Per\u00fa: Beneficios y riesgos\u2019, editado por la Escuela de Gobierno y Pol\u00edticas P\u00fablicas de la PUCP, la expresidenta del Organismo Supervisor de la Inversi\u00f3n en Infraestructura de Transporte de Uso P\u00fablico (Ositran), Patricia Benavente y el exministro de Econom\u00eda y Finanzas, Alonso Segura, explican que una APP es una asociaci\u00f3n a largo plazo en la que una entidad privada se encarga de la construcci\u00f3n de infraestructura, a cambio de una retribuci\u00f3n financiera por parte de los usuarios o el Estado<\/strong>.<\/p>\n\n\n\n

El by-pass del 28 de julio es parte de L\u00ednea Amarilla, una APP nacida en 2009 luego de la firma del contrato por parte de la Municipalidad de Lima, en ese entonces bajo la gesti\u00f3n de Casta\u00f1eda, y la empresa OAS, representada en ese momento por el hoy sentenciado y encarcelado L\u00e9o Pinheiro. El acuerdo consist\u00eda en la construcci\u00f3n y operaci\u00f3n de 16 kil\u00f3metros de concesi\u00f3n vial a cambio del pago de peaje durante 30 a\u00f1os.<\/p>\n\n\n\n

En el camino, tras la llegada de Susana Villar\u00e1n al municipio en el 2011 y el posterior retorno de Casta\u00f1eda, la concesi\u00f3n sufri\u00f3 varios cambios importantes. <\/p>\n\n\n

\n

\u00abPara el 2015 el costo de la obra hab\u00eda aumentado, el pago del peaje se hab\u00eda extendido a 40 a\u00f1os, y los lime\u00f1os tendr\u00edamos una obra en el coraz\u00f3n de la ciudad: un by-pass en plena avenida 28 de julio.<\/p>\n <\/blockquote>\n \n\n\n

\"\"
IIRSA-Sur, a cargo de un consorcio liderado por Odebrecht, tuvo un sobrecosto de 149%. Foto: Andina.<\/figcaption><\/figure>\n\n\n\n

El mecanismo de las adendas<\/strong><\/p>\n\n\n\n

\u201cEl concepto de APP se degener\u00f3\u201d<\/strong>, comenta a Memoria<\/strong> el ingeniero Juan Pari, excongresista y expresidente de la comisi\u00f3n Lava Jato del per\u00edodo pasado. El grupo de trabajo liderado por Pari investig\u00f3 irregularidades en asociaciones en las que participaban empresas brasile\u00f1as como Odebrecht, Camargo Correa, OAS, entre otras. En su investigaci\u00f3n, el exparlamentario expuso c\u00f3mo se produjeron actos de corrupci\u00f3n que permitieron a las empresas adjudicarse millonarios proyectos de infraestructura que luego incrementaron considerablemente su costo a partir de modificaciones al contrato original: las famosas adendas.<\/p>\n\n\n\n

\u201cEn los casos que yo he visto las empresas no han puesto el dinero. Es con dinero del Estado, de los usuarios, que se han hecho estas obras. Y se han llevado ganancias\u201d, se\u00f1ala Pari.<\/p>\n\n\n\n

Rafael Chanjan, abogado e investigador s\u00e9nior del Instituto de Democracia y Derechos Humanos de la PUCP, concuerda con que las adendas son \u201cel mecanismo a trav\u00e9s del cual se ha sobrevalorado extremadamente -hasta m\u00e1s del 100%- las obras que se desarrollan a trav\u00e9s de APP\u201d.<\/p>\n\n\n\n

Solo en la carretera IIRSA-Sur, a cargo de un consorcio liderado por Odebrecht, hubo un sobrecosto de 149%: pas\u00f3 de costar US$ 263 millones a US$ 654 millones, de acuerdo a un informe de IDL-Reporteros<\/a>. En la publicaci\u00f3n se detalla que los sobrecostos de Odebrecht en Per\u00fa alcanzaron los 4 mil 600 millones de soles<\/strong>: el equivalente a 5 veces el presupuesto de Beca 18 del a\u00f1o 2015.<\/p>\n\n\n\n

En Lima, la obra L\u00ednea Amarilla pas\u00f3 de costar 570 millones de d\u00f3lares el 2009 (con la gesti\u00f3n de Casta\u00f1eda) a 700 millones el 2011 (con la gesti\u00f3n de Villar\u00e1n).<\/p>\n\n\n\n

Para Chanjan, hay un problema habitual que va desde el inicio: generalmente las APP no cuentan con<\/strong> un estudio suficiente de cu\u00e1nto va a costar una obra. <\/strong>\u201cQuiz\u00e1 por el apuro, o quiz\u00e1 por otras intenciones\u201d, apunta el especialista. Lo cierto es que sin una evaluaci\u00f3n seria y sin un c\u00e1lculo de los riesgos a los cuales debe enfrentar el inversionista privado, el camino para las adendas queda despejado.<\/p>\n\n\n\n

\u201cLa incidencia de adendas en proyectos de APP en el Per\u00fa ha sido mayor al est\u00e1ndar internacional\u201d, apuntan Benavente y Segura en su art\u00edculo. \u201cLo cual, en algunos casos, podr\u00eda haber incidido en una p\u00e9rdida de valor por dinero\u201d, agregan.<\/p>\n\n\n

\n

\u2036En los \u00faltimos cinco gobiernos se han firmado 109 adendas para 31 contratos de concesi\u00f3n de infraestructura de transporte, de acuerdo al mismo documento. La gesti\u00f3n que m\u00e1s adendas alberg\u00f3 fue la del segundo gobierno de Alan Garc\u00eda, con 44. En segundo lugar est\u00e1 Ollanta Humala, con 27.<\/p>\n <\/blockquote>\n \n\n\n

La firma de estas adendas no implic\u00f3 necesariamente un beneficio para los usuarios. Una investigaci\u00f3n de RPP Data<\/a> revel\u00f3 que luego de revisar 68 adendas para obras de infraestructura vial, ninguna de ellas especifica inversiones que tomaran en cuenta la seguridad vial<\/strong>. Todo esto en las mismas carreteras en las que se registran m\u00e1s de 4 mil accidentes de tr\u00e1nsito al a\u00f1o<\/a>.<\/p>\n\n\n

\n

\u2036Las APP de por s\u00ed no son malas. Lo que pasa es que en la pr\u00e1ctica est\u00e1n siendo usadas para sobrecostos, para beneficios del contratista, y en desmedro del patrimonio del Estado\u201d, comenta el investigador Rafael Chanjan.<\/p>\n <\/blockquote>\n \n\n\n

\u201cEl Per\u00fa es un barco a la deriva que no tiene rutas ni puertos definidos. Es el privado quien te pone la agenda, quien te pone la ruta. No es el Estado. Deber\u00eda ser al rev\u00e9s\u201d, comenta Pari. \u201c\u00bfCu\u00e1l es la alianza p\u00fablico privada? Es el negocio privado utilizando mecanismos de corrupci\u00f3n\u201d, agrega.<\/p>\n\n\n\n

\"\"
Juan Pari, excongresista y ex presidente de la comisi\u00f3n Lava Jato del Congreso. Foto: Andina.<\/figcaption><\/figure>\n\n\n\n

Medidas anticorrupci\u00f3n<\/strong><\/p>\n\n\n\n

La revelaci\u00f3n de actos de corrupci\u00f3n ha hecho que en los \u00faltimos meses se produzcan cambios en la normativa vinculada a las APP. \u201cSe ha producido una progresiva regulaci\u00f3n m\u00e1s estricta<\/strong>, haciendo que la mayor parte de estas cosas [las negociaciones y adendas] pasen siempre por autorizaci\u00f3n del Ministerio de Econom\u00eda y Finanzas (MEF)\u201d, explica Walter Alb\u00e1n, director ejecutivo de Pro\u00e9tica, el cap\u00edtulo peruano de Transparency International.<\/p>\n\n\n\n

En el 2014 la Ley N\u00b0 30167 sancion\u00f3 con la anulaci\u00f3n al contrato o adenda que no tenga la opini\u00f3n favorable del MEF. Despu\u00e9s de algunas excepciones (la Municipalidad de Lima, la entidad p\u00fablica que m\u00e1s APP adjudic\u00f3 sin consultar al MEF, sigui\u00f3 firmando contratos a pesar de la sanci\u00f3n) se conoce que en la actualidad todos los contratos son remitidos a este ministerio para su aprobaci\u00f3n, de acuerdo con la informaci\u00f3n mostrada por Patricia Benavente y Alonso Segura en su art\u00edculo.<\/p>\n\n\n\n

Otro punto importante fue la implementaci\u00f3n de cl\u00e1usulas anticorrupci\u00f3n en contratos de grandes obras p\u00fablicas de infraestructura. Entre otras medidas, estas disponen la resoluci\u00f3n del contrato ante hechos de corrupci\u00f3n relacionados a la adjudicaci\u00f3n del mismo. La disposici\u00f3n se basa en una recomendaci\u00f3n hecha por la Comisi\u00f3n Presidencial de Integridad, y se ha anunciado que ser\u00e1 obligatoria<\/a> para las obras relacionadas a la reconstrucci\u00f3n en la costa norte.<\/p>\n\n\n\n

El ex Defensor del Pueblo Eduardo Vega, quien presidi\u00f3 dicha comisi\u00f3n, comenta a Memoria<\/strong> que es importante tambi\u00e9n contar con un plan de infraestructura nacional para los pr\u00f3ximos 20 a\u00f1os. Un documento permita delimitar qu\u00e9 obras son importantes para el Per\u00fa<\/strong>. As\u00ed se evita que cada funcionario tenga su propia agenda en cuanto a proyectos<\/p>\n\n\n\n

Adem\u00e1s, es necesario revisar los expedientes t\u00e9cnicos de las APP. \u201cY que la ingenier\u00eda proporcione (gaby, hab\u00edas puesto d\u00e9 pero me hace ruido) mucho m\u00e1s detalle, para que estas adendas no sean lo que hemos visto ahora con el caso Odebrecht\u201d, comenta Vega.<\/p>\n\n\n\n

El rol de Contralor\u00eda, en el marco de la nueva Ley de Fortalecimiento, aprobada este marzo, es clave en la prevenci\u00f3n de la corrupci\u00f3n en las APP. \u201cLos \u00f3rganos reguladores como Sutran deber\u00edan tener un mayor protagonismo\u201d, apunta Chanjan.<\/strong><\/p>\n\n\n\n

El reto para el actual Gobierno de Mart\u00edn Vizcarra est\u00e1 en fiscalizar las APP sin caer en la paralizaci\u00f3n de obras. Hay que recordar que el presidente tiene al frente una reconstrucci\u00f3n lenta (a la que \u00e9l mismo se refiri\u00f3 con que \u201chasta ahora no han hecho pr\u00e1cticamente nada\u201d) y una b\u00fasqueda de dinamismo en la econom\u00eda.<\/p>\n\n\n\n

Al mismo tiempo, Vizcarra recibi\u00f3 cr\u00edticas y fue investigado por la Fiscal\u00eda tras la firma de la adenda del contrato del Aeropuerto Internacional de Chinchero, en Cusco, cuando fue ministro de Transportes y Comunicaciones.<\/p>\n\n\n\n

\u201cSe trata de ver c\u00f3mo permitir que estas opciones [las APP] est\u00e9n en la posibilidad de liberar al estado de cargas que podr\u00edan ser asumidas por particulares, pero cuidando que no se pueda hacer un abuso<\/strong>, como ha ocurrido en el pasado\u201d, opina Walter Alb\u00e1n.<\/p>\n\n\n\n

El Aeropuerto de Chinchero, una obra que inicialmente tendr\u00e1 un costo de US$ 200 millones, ya no ser\u00e1 una APP. Ahora se desarrollar\u00e1 a trav\u00e9s de la modalidad de obra p\u00fablica.<\/p>\n\n\n\n

\"\"
Reniec admiti\u00f3 21, 321 firmas v\u00e1lidas de planillones de Habla Casta\u00f1eda. Pero se necesitan 25,000 para que autoridad edil rinda cuentas. Foto: Andina.<\/figcaption><\/figure>\n\n\n\n

La importancia de la vigilancia<\/strong><\/p>\n\n\n\n

En un pa\u00eds en el que hechos de corrupci\u00f3n tienen relaci\u00f3n con un presidente renunciante, otro se encuentra preso, otro en v\u00edas de extradici\u00f3n, uno investigado y hasta uno indultado; quiz\u00e1 suene parad\u00f3jico que una parte de la soluci\u00f3n dependa del ciudadano de a pie.<\/p>\n\n\n\n

De hecho, los especialistas coinciden en que la participaci\u00f3n ciudadana es clave en el intento de prevenir la corrupci\u00f3n.<\/p>\n\n\n\n

En el caso del by-pass y la Plaza Nueva, las primeras denuncias aparecieron en los medios de comunicaci\u00f3n luego de que los vecinos registraron las irregularidades en fotograf\u00edas y videos: paralizaci\u00f3n de obras, retiro de tanques de gasolina, grietas, etc. Una denuncia ambiental destap\u00f3 otra por sobrecostos, y esta, finalmente, a los acuerdos bajo la mesa para la firma de adendas.<\/p>\n\n\n\n

\u201cEn las democracias que funcionan mejor y tienen menos corrupci\u00f3n, la ciudadan\u00eda ejerce la vigilancia ciudadana\u201d, se\u00f1ala Walter Alb\u00e1n. \u201cAc\u00e1 en el Per\u00fa estamos poco acostumbrados a hacer esta demanda, es algo que tenemos que cambiar, hacer que el ciudadano se empodere\u201d, asegura.<\/p>\n\n\n\n

En Lima, el colectivo \u2018Habla, Casta\u00f1eda\u2019 recolect\u00f3 las 25 mil firmas necesarias para que el alcalde responda sobre su gesti\u00f3n a la ciudadan\u00eda en el primer proceso de este tipo: una demanda de rendici\u00f3n de cuentas. \u201cEsperamos que el Jurado Nacional de Elecciones, quien est\u00e1 velando por todo el proceso, garantice una calidad de respuestas bastantes sustanciales\u201d, coment\u00f3 el regidor Hern\u00e1n N\u00fa\u00f1ez, promotor de la iniciativa, a Ideele Radio.<\/p>\n\n\n\n

Las preguntas, como era de esperarse, se enfocan en los costos y sobrecostos de algunas de las obras emblema de la gesti\u00f3n de Casta\u00f1eda. <\/strong>\u201c\u00bfCu\u00e1nto cost\u00f3 la Plaza Nueva?\u201d, estaba escrito en la pancarta de un integrante del colectivo. Al cierre de la presente edici\u00f3n la Municipalidad de Lima no ha informado sobre un monto preciso.<\/p>\n\n\n\n

La importancia de la vigilancia ciudadana est\u00e1 respaldada en investigaciones, como la del profesor e investigador de la Universidad de Columbia Paul Lagunes. En su estudio, titulado \u2018Guardianes de la administraci\u00f3n p\u00fablica\u2019<\/a>, Lagunes llev\u00f3 a cabo un experimento en el que se tom\u00f3 en cuenta a 200 municipalidades del Per\u00fa que realizaron obras como pistas, lozas deportivas, veredas, etc. entre los a\u00f1os 2015 y 2017.<\/p>\n\n\n\n

A 100 municipios se les comunic\u00f3 de manera formal que tanto la sociedad civil (bajo el monitoreo de Pro\u00e9tica) como la Contralor\u00eda General de la Rep\u00fablica iban a estar al tanto del desarrollo de las obras. A las otras 100 no se les inform\u00f3 sobre la vigilancia.<\/p>\n\n\n\n

Lagunes obtuvo como resultado que si bien el tiempo de ejecuci\u00f3n hab\u00eda sido similar, el costo de las obras en municipios \u201cvigilados\u201d fue sustancialmente menor al de las comunas que no recibieron comunicaci\u00f3n sobre la observaci\u00f3n<\/strong>. El costo de las obras \u201cvigiladas\u201d fue cerca del 50% menos: se calcul\u00f3 un ahorro de m\u00e1s de 24 millones de soles solo en las municipalidades observadas.<\/p>\n\n\n\n

\"\"
Walter Alb\u00e1n, presidente ejecutivo de Pro\u00e9tica, se\u00f1ala los beneficios de la vigilancia ciudadana. Foto: Andina.<\/figcaption><\/figure>\n\n\n\n

\u201cHay un c\u00edrculo que hay que potenciar: ciudadano, prensa y funcionarios honestos que quieren denunciar.<\/strong> Hay que garantizar que las personas puedan tener un canal efectivo que a la vez los proteja\u201d, a\u00f1ade Eduardo Vega. \u201cEn la Reconstrucci\u00f3n con Cambios<\/a> hay una oportunidad de que las comunidades, la gente que va a estar directamente vinculada con las obras, pueda tener una participaci\u00f3n activa\u201d, reflexiona.<\/p>\n\n\n\n

\u201cNo ser\u00e1 perfecto en un primer momento, pero hay elementos suficientes para estar convencidos de que a la larga esto es un camino de aprendizaje que da excelentes resultados\u201d, se\u00f1ala Walter Alb\u00e1n.<\/p>\n\n\n\n

\u201cLamentablemente las redes de corrupci\u00f3n est\u00e1n intactas en los gobiernos regionales\u201d, advierte Vega, <\/strong>quien alista una investigaci\u00f3n sobre el tema para mediados de este a\u00f1o.<\/strong> A seis meses para las elecciones regionales y municipales, es necesario prestar atenci\u00f3n a lo que ocurre en provincia.<\/p>\n\n\n

\n

\u2036Actualmente, de acuerdo a\u00a0c\u00e1lculos de la Defensor\u00eda del Pueblo<\/a>, Per\u00fa pierde 12 mil millones de soles anuales por casos de corrupci\u00f3n. La cifra es elocuente: supera al presupuesto anual del Ministerio del Interior.<\/p>\n <\/blockquote>\n \n\n\n

En un pa\u00eds en el que solo dos de cada 100 denunciados por corrupci\u00f3n terminan en prisi\u00f3n, de acuerdo al Mapeo de Iniciativas Anticorrupci\u00f3n en el Estado Peruano, La Sociedad Civil y Las Empresas<\/em>,\u00a0<\/em>realizado por la Universidad Ruiz de Montoya<\/a>, el esfuerzo ciudadano cobra una relevancia mayor. Depender\u00e1 de ello prevenir que se repitan actos de corrupci\u00f3n en proyectos que, al menos en teor\u00eda, deber\u00edan beneficiar a todos los peruanos.<\/p>\n\n\n\n

<\/p>\n","protected":false},"excerpt":{"rendered":"

Tras las revelaciones del esc\u00e1ndalo Lava Jato, las Asociaciones P\u00fablico Privadas (APP) enfrentan un cambio en las reglas de juego. \u00bfPuede la nueva regulaci\u00f3n frenar la corrupci\u00f3n y los sobrecostos? Con el reto de la reconstrucci\u00f3n en el norte, y a seis meses de las elecciones regionales, la participaci\u00f3n ciudadana surge como opci\u00f3n de fiscalizaci\u00f3n. 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