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Contribuc= ión del control previo al pago a contratistas = de obras: Municipalidad cantón Pichincha Manabí

Contribution of control prior to payment of works contractors: Municipality canton Pichincha Manabí

 

 


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 <= /span>

Carmen Vanessa Zambrano Falcones             https://orcid.org/0000-0002-0056-2658<= /span>

Universidad San Gregorio de Portoviejo – Maestra= nte en Contabilidad y Auditoría

 juvaprincesa_@hotmail.com <= o:p>

2=

Rosa Yessenia Vera L= oor                              <= /span>https://orcid.org/0000-0001-61= 07-9793

Candid= ata a Doctor PHD Universidad del Zulia (LUZ). Docente investigador Universidad Laica Eloy Alfaro de Manabí (ULEAM)

rosa.vera@uleam.edu.ec

 

 

 

 

 

 

 <= /span>

Artícu= lo de Investigación Científica y Tecnológica

Enviad= o: 20/03/2022

Revisa= do: 26/04/2022

Acepta= do: 03/05/2022

Public= ado:30/05/2022

DOI: https://d= oi.org/10.33262/concienciadigital.v5i2.1.2204

 

 

 =

 

Cítese= :

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Zambrano Falcones , C= . V., & Vera Loor, R. Y. (2022). Contribución del control previo al pago a contratistas de obras: Municipalidad cantón Pichincha Manabí. ConcienciaDigital, 5(2.1), 222-240. https://d= oi.org/10.33262/concienciadigital.v5i2.1.2204

 

 

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CONCIENCIA DIGITAL, es una revista multidisciplinar, trimestral, que se publicará en soporte electrónico tiene como misión contribuir a la   formación de profesionales competentes con visión humanística y crítica q= ue sean capaces de exponer sus resultados investigativos y científicos en la misma medida que se promueva mediante su intervención cambios positivos e= n la sociedad. https://concienciadigital.org  <= /span>

La revista es editada por la Editorial Ciencia Digital (Editorial de prestigio registrada en la Cámara Ecuatoriana de Libro con No de Afiliaci= ón 663) www.celibro.org.ec

 

 

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 =

Esta revista está protegida bajo una licencia Cr= eative Commons Attribution Non Commercial No Derivatives 4.0 International. Copia de la licencia: http://creativecommons.org/licenses/by-nc-nd/4.0/

 

Palabras claves:<= /b> Control previo, pago a contratistas, eficienci= a, eficacia, leyes, ordenanzas. Clasificación JEL: P43

 =

 =

Resumen

El control previo al pago a contratistas de obras es una obligación que tiene el departamento de Tesorería en instituciones públicas o privadas cumpliendo los fundamentos legales y normados dentro de su ejecución, como objetivo del trabajo de investigaci= ón consistió en describir la información recopilada directamente con la entidad objeto= de estudio, obteniendo la documentación e información necesaria por parte de= los funcionarios responsables del control previo de los pagos a contratistas,= se realizó un análisis documental basado en la revisión y estudio de documen= tos como: procesos de pagos y reglamentos internos de la entidad, normas de control, leyes, ordenanzas Ecuatorianas y una amplia revisión bibliográfi= ca de artículos científicos. El resultado del trabajo investigativo consisti= ó en flujogramas de pagos los cuales evidencian que al aplicarse el control pr= evio al pago a los contratistas este se realizará con efectividad y eficacia, desarrollando las diferentes actividades ordenada, sistemática y cronológ= icamente.

=  =

Keywor= ds: Prior control, payment to contractor= s, efficiency, effectiveness, laws, ordinances. Jel Classification: P43

 

 

Abstract

The control prior to payment to construction contractors is an obligation that the Treasury department has in public or private institutions, complying with the legal and regulated foundations within i= ts execution, as the objective of the research work was to describe the information collected directly with the entity object of study, obtaining= the necessary documentation and information from the officials responsible for the prior control of payments to contractors, a documentary analysis was carried out based on the review and study of documents such as: payment processes and internal regulations of the entity, control standards, laws, Ecuadorian ordinances and an extensive bibliographic review of scientific articles. The result of the investigative work consisted of payment flowcharts which show that when applying the control prior to payment to contractors, this will be conducted effectively and efficiently, developi= ng the different activities in an orderly, systematic, and chronological man= ner.

&= nbsp;

 

 

 

Introducción<= /b>

El control dentro de las organizaciones a nivel gl= obal además de ser el acumulado de conductas que enmarcan el accionar como insti= tución es imprescindible para llevar a cabo correctamente los procesos internos, utilizando varias herramientas útiles de gestión, que permiten lograr conse= guir los objetivos de la institución y a su vez avalar que la información financ= iera y contable sea segura, real y esté sujeta con la ley, normas y reglamentos = del Estado.

La importancia del control dentro de las entidades= para Hernández (2018):

Es vital para las pequeñas y medianas entidades que hagan un examen minucioso de su sistema de control interno, pues este es un proceso sinérgi= co hecho por todos los individuos de una organización, dirigido a alcanzar las metas, a prevenir la pérdida de los recursos y a garantizar el aseguramient= o de la información contable y financiera, reconociendo en este sistema de contr= ol interno la organización de la entidad, para la gestión de sus riesgos. (p.451)

Esta investigación tuvo como objetivo demostrar el cumplimiento correcto y oportuno del control previo al pago a contratistas = de obra mediante la aplicación de fundamentos legales y normados, que cumplan = con lo que establecen las Normas de Control, y así de esta manera determinar y conocer que procedimientos y acciones adoptan las entidades públicas para precautelar el correcto control previo a la realización de un pago.

“Las servidoras y servidores de las instituciones = del sector público designados para ordenar un pago, suscribir comprobantes de egreso o cheques, devengar y solicitar pagos vía electrónica, entre otros, previamente deberán acatar varias disposiciones” (Hernández, 2018, p.16). Es evidente que, llevando un adecuado control por parte de los funcionarios cu= ya responsabilidad de pagos recae sobre ellos y respetando las diferentes disposiciones que la norma de control dispone, los procesos fluirán eficientemente y se cumplirá a cabalidad con el objetivo (Contraloría General del Estado, 2019).

“El control previo y perceptivo fue remplazado por= el posterior y selectivo, que comprende los controles financieros, de gestión = y de resultados basados en la eficiencia, la economía, la equidad y la valoració= n de los costos ambientales” (Contraloría General del Estado, 2019, p.77). En la= ley que rige aquí en Ecuador en la actualidad el sistema de control interno en = las Instituciones se sigue aplicando bajo tres tiempos de control, el de forma previo, continuo y posterior, cada uno con sus respectivos responsables par= a la vigilancia financiera e institucional (González & Mosquera, 2020).

El pago a proveedores o contratistas es una obliga= ción legal que tiene el sistema de Tesorería en las entidades públicas y privadas con el contratista o beneficiario encargado de proveer bienes, ejecutar obr= as y prestar servicios, que en muchas ocasiones se ha evidenciado complicado pod= er realizarlo de manera responsable y en el tiempo indicado por varios factores tanto internos de la entidad como externos por parte del contratista. =

Como es de conocimiento general en la actualidad q= ue a nivel mundial se vive esta terrible pandemia como es el COVID 19 que ha ven= ido causando diferentes trances imprevistos en lo económico para el contratista= ; lo cual es uno de los factores que han permitido que este no perciba de manera puntual el pago por su servicio, bien u obra, en este sentido se puede indi= car que:

Los efectos de la pandemia han evidenciado la insuficiencia de las herramientas jurídicas tradicionales para hacer frente a muchos casos de incumplimiento contractual causado por circunstancias extraordinarias posteriores a la celebración de los acuerdos. Frente a esta situación, vari= os ordenamientos jurídicos han decidido adoptar diversas normas de emergencia = para sortear todo tipo de dificultades en diferentes aspectos, entre ellos el contractual (Bauer & Fandiño, 2021, p.55).

Para el cumplimiento de un control previo al pago a contratistas está claro que toda entidad del sector público requiere de nor= mas de contratación, lo que garantiza un control responsable con la finalidad de agilitar el proceso de forma correcta el pago. Todo servidor público debe conocer la importancia de llevar un control previo propicio, y en este caso= los funcionarios del área de financiero que son los encargados de este, verific= ando la legalidad de los documentos y presencia de instrumentos considerados soportes necesarios para la realización del pago.

Por lo antes mencionado se insiste en la importanc= ia del control previo ya que ayuda a cumplir con las metas planteadas por la institución y no caiga en algún tipo de sanción; además, contribuye a lograr que los procedimientos se lleven de forma eficiente y eficaz desde el contr= ol previo hasta el momento del pago.

“Según algunos constituyentes, avanzar hacia el control de resultados, atendiendo a la necesidad de garantizar el logro de los resultados que la sociedad debe obt= ener de la utilización de los recursos estatales” (Contraloría General del Estado (2009, p.75).

 Para  ADDIN ZOTERO_ITEM CSL_CITATION {"citationID":"Ew8PYDMb","properties":{"= formattedCitation":"(GONZALEZ ZAPATA & MOSQUERA PEREA, 2020)","plainCitation":"(G= ONZALEZ ZAPATA & MOSQUERA PEREA, 2020)","dontUpdate":true,"noteIndex":0},"cita= tionItems":[{"id":55,"uris":["http://zotero.o= rg/users/local/Zo7USP0N/items/NBJ2VKU8"],"uri":["http:/= /zotero.org/users/local/Zo7USP0N/items/NBJ2VKU8"],"itemData"= :{"id":55,"type":"article-magazine","tit= le":"DEL CONTROL PREVIO Y PERCEPTIVO AL POSTERIOR Y PREVENTIVO: ESTUDIO DE LA TRAYEC= TORIA EN EL CONTROL FISCAL EN COLOMBIA.","volume":"15","author":[{&quo= t;family":"Gonzalez Zapata","given":"Alexandra"},{"family":&= quot;Mosquera Perea","given":"Leyner"}],"issued":{&quo= t;date-parts":[["2020"]]}}}],"schema":"https:= //github.com/citation-style-language/schema/raw/master/csl-citation.json&qu= ot;} González & Mosquera (2020), la creación de un departamento encargado del control de resultados es sumamente importante ya que ayuda a tener un seguimiento continuo de la utilización correcta de los  recursos económico= s y sociales hasta llegar a los resultados esperados; sin embargo, se recalca q= ue, las leyes y los organismos de control de todos los países son diferentes y = aquí en Ecuador la Contraloría General es el ente encargado de dar seguimiento y control a los resultados en las diferentes administraciones en base a los objetivos.

El desarrollo de un control preventivo no sería una de las principales necesidades que el país tuviese en materia de lucha contra la corrupción, si los procesos de control interno de las autoridades cumplieran de manera íntegra, oportuna y expedit= a lo que la Constitución y la ley les ordenan (González & Mosquera, 2020, p.87).

Revisión de la Literatur= a

El control previo se define como un control extern= o, directo, de carácter previo como su nombre, técnico, de legalidad y económi= co, recae sobre las personas que administran o custodian fondos o recursos públ= icos” (González & Mosquera, 2020, p.4).

Por tanto, el control previo se constituye de actividades y operaciones en donde los funcionarios encargados de este cont= rol se acoplan previamente a una decisión o en su posterior paso; como es el pa= go. La aplicación de este proceso contribuye esencialmente en la optimización d= el sistema administrativo e institucional en cuanto a las diferentes programaciones de las Entidades Públicas (Berbey et al., 2018).

En este sentido, es indispensable concordar  con las normas y leyes del Estado las diferentes disposiciones de control con las múltiples instituciones pública= s, esta vigilancia es encargada directamente la Contraloría General del Estado= , que como institución reguladora y de control externo ayuda a proveer seguridad aplicando un sistema de control, fiscalización y auditoria regulando un funcionamiento eficaz y eficiente dentro de las instituciones bajo una sola finalidad que cumplan con la visión, misión y objetivos  planteados y a utilizar de la mejor man= era sus recursos, administración y bienes públicos.

El control previo presenta una serie de ventajas, siendo la más importante de todas, que es un mecanismo de control externo en las empresas públicas, a fin de impedir que se perfeccionen actos de manejo= que afecten el patrimonio público y que infrinjan las disposiciones legales, contables y administrativas vigentes. (Berbey, 2018, p.62)

El ejercicio de control interno se constituye de u= na serie de instrucciones aplicados por el regidor de la institución, grupo de directores y funcionarios, respaldándose o teniendo en cuenta las diferentes normas y leyes del Estado, este sistema se designa mediante 3 tiempos de control: previo, continuo y posterior, donde se detalla:<= /p>

 

 

 

 

 

Tabla 1

Tiempos del control

Control previo

Control continuo

Control posterior

 

Los servidores de la i= nstitución analizaran las actividades institucionales propuestas, antes de su autorización o ejecución, respecto a su legalidad, veracidad, convenienci= a, oportunidad, pertinencia y conformidad con los planes y presupuestos institucionales.

 

 

Los servidores de la institución, en forma continua inspeccionaran y constataran la oportunida= d, calidad y cantidad de obras, bienes y servicios que se recibieren o prest= aren de conformidad con la ley, los términos contractuales y a las autorizacio= nes respectivas.

 

La unidad de auditoría interna será responsable del control posterior interno ante las respectiv= as autoridades y sea aplicará a las actividades institucionales, con posterioridad a su ejecución.

 

Fuente: Ley Orgánica de la Contraloría General del Estado Ecuatoriano (2009), art. 12

El control interno continuo, consiste en llevar un control estructurado y perenne para mitigar cualquier riesgo mediante herramientas que ayuden a mitigarlos y que estos no repercutan las metas in= stitucionales.  Estos tiempos de control ayuda signific= ativamente al mejoramiento de la administración interno de las instituciones públicas, tomando iniciativa y asumiendo responsabilidades de los problemas que puedan suceder, que limitan de una u otra manera los procesos dentro de la entidad= .

“La aplicación de un modelo eficiente de Gestión de Riesgos, contribuye de manera razonable en la toma de decisiones estratégic= as, en relación con el cumplimiento de objetivos y normativa vigente en el context= o del sector público” (Berbey, 2018. p.33). Por lo tanto, se puede indicar que, en los actuales momentos es imprescindible contar con alguna herramienta que a= yude a mitigar cualquier tipo de riesgos en la institución, buscando estrategias= que ayuden a alcanzar las metas institucionales orientadas o en función a la mi= sión y visión de la misma (Ortiz, 2021).

Debe ser prioridad de los directivos de las instituciones públicas, = y de los contadores, velar por la implementación de políticas que ayuden a identificar, mitigar y controlar los riesgos de sus operaciones y de hacer cumplir las directrices de control emitidas por los despachos superiores (Berbey et al., 2018, p.2).

La Contraloría General del Estado como ente de control, es quien refuerza el modelo legislativo que dispone esta entidad en función de rector de la fiscalización pública, brindando confianza al model= o de control previo, elaborado por los funcionarios, directores departamentales, auditores internos y contadores de las diferentes instituciones públicas, y= hasta quien realiza el control interno a los organismos públicos tal como lo manifiesta Rhein en el siguiente texto:

“El control interno de la Administración Pública es aquel manifestado por una autoridad jerárquicamente superior, acerca de la compatibilidad material entre el acto de una autoridad inferior y la ley en aplicación” (Berbey et al., 2018, p.3). En este caso, se puede indicar= que, el control interno dentro de los organismos públicos la responsabilidad cor= re desde el superior hasta el subordinado, en casos que la institución cuente = con un auditor, pues este es el encargado principal de que todo se cumpla en ba= se a la ley y normas de control (Rhein, 2019).

En la mayoría de las instituciones municipales cue= ntan con el personal suficiente y a disposición para lograr un excelente control, pero en su mayoría no son bien monopolizados por varios factores:

Desviación de políticas, metas, y objetivos planteados por los municipios, no cumplimiento de los requisitos legales e internos, no información a la administración, estrategias inefectivas para la evaluación= del control Interno y Sistema de Gestión de Calidad, no exactitud en la comunic= ación (Velásquez, 2019, p.33).

Parte de las actividades de control en las instituciones públicas, es la responsabilidad que tiene el regidor de la institución y los funcionarios con el control interno en concordancia de lo= que le corresponde realizar, elaborando estrategias, políticas o instrucciones = para poder mitigar cualquier riesgo, controlando y salvaguardando los recursos públicos y documentos, estar al pendiente del buen desempeño de los procedimientos y porque no inspeccionar los procesos y tomar acciones correctivas cuando se encuentren desvíos e incumplimientos.

“En toda organización, el control interno provee de una seguridad razonable para el logro de los objetivos institucionales, por= lo que las medidas se encuentran definidas en marcos legales de obligatorio cu= mplimiento para todos los miembros” (Velásquez, 2019, p.52).

Para que las medidas de control encargadas de dete= ctar y prevenir riesgos, mencionadas anteriormente sean efectivas, los mecanismo= s de control deben ser los más idóneos, encaminados al desarrollo de los procedimientos internos u objetivos de la entidad, esto ayuda a evitar la duplicidad de funciones de los servidores internos, que en muchas ocasiones= les provoca un colapso en sus responsabilidades propias del puesto que ocupan, = esto llega a pasar por no hacer cumplir o desempeñar las actividades que les corresponden a cada funcionario de cada área y haciendo cumplir o dando buen uso del manual de procedimiento que tiene como fin el tomar decisiones corr= ectas y a su vez, cumpliendo con las disposiciones establecidas (López & Cañizares, 2018).

“El control interno, busca promover la eficiencia, eficacia, transparencia y economía en las operaciones de la entidad, la cal= idad de los servicios públicos que presta, cuidar y resguardar los recursos y bi= enes del Estado” (López & Cañizares, 2018, p.212). Sin embargo, no se debe olvidar que la bu= ena aplicación de leyes hace que el control interno cuide el dinero público fre= nte a cualquier perjuicio, desperfecto u acto ilegal que pudiese afectar a la institución (Mendoza et al., 2018).

 “Hay que = tomar en cuenta una realidad, que una empresa sin control interno no puede crecer= ” (Pereira, 2019, p.5). Sin duda alguna llevar un control minucioso en cuanto a las planificaciones de actividades hacia lo que se quiere lograr dentro de las instituciones y llevando una buena organización estas llegaran a crecer logrando el triunfo deseado (Pereira, 2019).

El Control Previo al pago exterioriza que los servidores y servidoras de las entidades públicas encargadas de realizar el pago, realizar los comprobantes, devengar y requerir pagos electrónicos, en= tre otros, se deberán cumplir con los siguientes ítems:

Tabla 2

Disposiciones de Control Previo al Pago

 

ITEM

 

NORMATIVA

 

CONTENIDO

 

a)

 

Norma 403-08

Todo pago corresponder= á a un compromiso devengado, legalmente exigible, con excepción de los antici= pos previstos en los ordenamientos legales y contratos debidamente suscritos.=

b)

Norma 403-08

Los pagos que se efect= úen estarán dentro de los límites de la programación de caja autorizada.=

c)

Norma 403-08

Los pagos estarán debidamente justificados y comprobados con los documentos auténticos respectivos

d)

Norma 403-08

Verificación de la existencia o no de litigios o asuntos pendientes respeto al reconocimiento total o parcial de las obligaciones a pagar; y,

e)

Norma 403-08

Que la transacción no = haya variado respecto a la propiedad, legalidad y conformidad con el presupues= to.

Fuente: Normas de Control Interno, Contraloría General del Estado (2009)

Para lo antes mencionado, cabe indicar que los documentos justificativos son los que se encuentra un comprobante de compro= miso presupuestario y los documentos comprobatorios, es en donde se evidencia la entrega de la obra, bien o servicios contractuales.

La máxima autoridad y los servidores encargados del manejo financier= o institucional serán responsables del control interno, la gestión y el cumplimiento de objetivos y metas, así como de observar estrictamente las disposiciones contenidas en el presente reglamento y las normas técnicas respectivas emit= idas por el ministerio de Economía y Finanzas (Plan Nacional de Desarrollo, 2014, p.33).

Es compromiso de cada uno de los involucrados ser observadores estrictos en cuanto a las disposiciones contenidas en los diferentes reglamentos, leyes y normas diseñadas por los entes de estado y Ministerio de Economía y Finanzas dando cumplimiento a sus objetivos y meta= s de la entidad representativa.

Metodología

“Se define a la investigación cualitativa como un árbol que hunde sus raíces en la vida cotidiana, y que parte de tres actividades básicas: experimentar/vivir, preguntar y examinar” (Roca, 2020,= p.3). Desde esta perspectiva el enfoque del presente artículo es cualitativo porq= ue se examinó observando y analizando los diferentes instrumentos, el procedimien= to de actividades del control previo y la forma de como el mismo contribuye en las entidades públicas y la importancia de su aplicación a la práctica (Roca, 2020).

Además, la investigación también fue descriptiva, puesto que el objetivo de esta fue describir la información recopilada dire= ctamente con la entidad de estudio, obteniendo la documentación e información necesa= ria por parte de los funcionarios responsables del control previo de los pagos = en la institución.

Se realizó un análisis documental que se basó en la revisión y estudio de documentos como: procesos de pagos y reglamentos inte= rnos de la entidad, normas de control, leyes y ordenanzas del Estado Ecuatoriano= , y una amplia revisión bibliográfica de artículos científicos.

Resultados

Un control previo al pago es responsabilidad de to= dos los servidores desde el momento en que inicia el proceso hasta llegar a tesorería, cumpliendo con un número de procedimientos y gestiones que adopt= an al tomar decisiones, para precaver una gestión idónea del recurso humano, financiero y pública en general, contribuyendo de forma positiva el cumplimiento de las entradas y salidas de dinero, respaldándose en las norm= as vigentes del estado, demostrando transparencia y que cada comprobante de pa= go contenga los sustentos necesarios y fidedignos.

 Contratistas de obras<= /i>

Un contratista de obra es una persona o entidad, procurador de un contrato de obra a ejecutar, a cambio de un precio pactado= y en un tiempo determinado. El contratista es una de las dos partes que confo= rman el contrato de obra. Para efectos de las Normas de control Interno, las personas o entidades ya sean estas de nacionalidad ecuatoriana o del extran= jero que decidan concursar en cualquier proceso de contratación, debe constar en= el RUP registro único de proveedores, y al mismo tiempo estar idóneo para concursar, donde toda la información en cuanto al proceso es publicada en e= l portal de compras públicas.

“El sector de la construcción es una de las actividades que mayor impacto tiene en la economía nacional porque dinamiza varios subsectores y además utiliza mano de obra no calificada” (Rojas et al., 2017, p.1). Esto ocurre, debido a que las obras de infraestructura son las que más llaman la atención de la ciudadanía frente a los gobiernos municipales, siendo estos uno del principal afán para el mejoramiento y progreso económico del cantón, porque directa e indirectamen= te se benefician comercios y ferreterías que proveen cualquier tipo de materia= les y herramientas de construcción y así mismo generando empleo a la mano de ob= ra (Rojas et al., 2017).

Todos los contratistas o proveedores que incumplan con sus obligacio= nes contractuales o se hubiesen negado a suscribir contratos adjudicados, las entidades remitirán obligatoriamente la nómina correspondiente junto con los documentos probatorios al Servicio Nacional de Contratación Pública, con la finalidad de que sean suspendidos en el RUP por 5 a 3 años respectivamente = (Servicio Nacional de Contratación Pública, 2008, = p.46).

El sistema de contratación pública es necesaria y fundamental porque coordina y concilia a todas las instituciones en los diferentes ámbitos, ayuda a planificar, programar, administrar, controlar y= en la ejecución a la adquisición de bienes y servicios y obras que se ejecutan= bajo recursos públicos a través de los portales de contratación.

“Los portales electrónicos de los organismos públi= cos se utilizan para la prestación de servicios públicos a la sociedad de la ma= nera más transparente posible, sobre todo por el volumen de recursos y por la ga= ma de servicios” (pág.76). Paralelamente, de que son sistemas netamente seguro= s, tienden a haber pequeños dolos que beneficien o descalifican a determinado participante, es aquí donde se debe hacer un llamado a la institución correspondiente para que sean veedores y solucionadores de estos casos, que= no deberían existir (Teixeira & Ramos, 2019).

 “En el Ec= uador en los últimos años, se viene observando el cometimiento de actos de corrup= ción especialmente, en las contrataciones públicas que, en su mayoría se encuent= ran con sobreprecios” (Alarcón & Gallegos, 2021, p.42).

Es claro que, para muchos hoy en día aún existen a= ctos de corrupción que perjudican o benefician de alguna manera a los contratist= as, situación que no debe pasar, donde los únicos perjudicados son los habitant= es del cantón (Alarcón & Gallegos, 2021).

Muchas veces existe bastante desconocimiento sobre= cómo funciona el Servicio Nacional de Contratación Pública (SERCOP), frente a las diferentes contrataciones, la cual imposibilita que éste realice el proceso correctamente y en los tiempos idóneos, por lo tanto, es indispensable que = se socialice y se extienda a profesionales encargados de aquello, así lo menci= ona:

Ampliar este tipo de análisis a todos los GAD municipales del país permitirá establecer el nivel de transparencia de los procesos de adquisici= ones públicas a nivel nacional, lo que constituye un insumo necesario para propo= ner mejorar al buen funcionamiento del SERCOP. (Rodríguez et al., 2018, p.89)

El siguiente diagrama de flujo sobre el proceso de contratación de obra, ayudará a las entidades públicas a establecer lineamientos para el inicio de cada contratación de obras, donde  una vez identificada la necesidad por p= arte de la unidad requirente, según la planificación determinada, o en función de solicitudes que se desplieguen en el proceso de las funciones, se procederá= a iniciar la fase preparatoria, fase pre contractual y fase contractual del procedimiento de contratación; para lo cual se detallarán paso a paso el procedimiento a cumplir indicando los documentos que les corresponde emitir cada uno de los responsables involucrados:

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Figura 1

Proceso de contratación

DIAGRAMA DE FLUJO DEL PROCESO DE CONTRATACION DE OBRAS.<= /span>

Objetivo. -Establecer los lineamientos al iniciar el procedimi= ento de contratación de obras y detallar las actividades del proceso en sus tr= es fases para aportar al desempeño de la planificación de la institución municipal.

Alcance. - abarcar el conjunto de actividades requeridas desde el momento en que se genera la necesidad dando inicio en sus tres etapas: Preparatoria, Precontractual y Contractual del contrato.

FASE PREPARATORIA

OFERENTE

DIRECCION FINANCIERA

MAXIMA AUTORIDAD

UNIDAD DE CONTRATACION

UNIDAD REQUIRENTE

JURIDICO

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Emite Parti= da Presupuestaria

 

 

 

 

 

 

 

 

 

 

 

 

 

Junto con l= os pliegos, emite Resolución de Inicio

 

 

 


INICIO

Verificar q= ue conste en el PAC y solicita Partida Presupuestaria<= /p>

 

 

 

 

 

 

 


Elabora los pliegos

Elabora la identificación de necesidad, los estudios, especificaciones técnicas = y/o TDR

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

FASE PRE-CONTRACTUAL

Envía oferta

Revisa y acepta la invitación=

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


Emite Resolución de adjudicación

 

 

 

 

 

 

 

 

 

 

 


Realiza la = publicación en el Portal

 

 

 

 

 

 

 

 

Revisa ofertas y realiza los informes y actas correspondientes

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


FASE CONTRACTUAL

 

 

 

 

 

 

 

 

 

 

 

Recibe la notificación de adjudicación de obra

Recibe el contrato ya elaborado y listo para continuar con el proceso

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 


 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Contrato suscrito

Firmas de contrato entre las partes

Solicita la documentación para elaborar el contrato

 

 

 

 

 

 

 

 

 

 

 

 


Pagos a contratistas

En el proceso de pago a contratistas, el equipo de= tesorería se encargará de llevar una gestión eficiente y diáfana de los recursos del estado de la cuenta única como es la del tesoro nacional, reconociendo las diferentes necesidades de cancelación que demanda el presupuesto general del estado.

Los pagos de las obligaciones legalmente exigibles= en que incurran las entidades del sector público se realizarán a través de los mecanismos de acreditación desarrollados por el depositario oficial, en las cuentas de los beneficiarios finales. Con el fin de trabajar articuladament= e el contratista debe coordinar directamente con tesorería cualquier trámite de documentación en cuanto a facturación y actualización de datos o documentos habilitantes para que al final no exista ningún inconveniente al pago oport= uno.

Como primera fase en la ejecución de un pago es la existencia de un compromiso, devengado o solicitud de pago en la programaci= ón financiera, el cual es de exclusiva responsabilidad de la tesorera, respaldándose legalmente en conformidad a las políticas, leyes, reglamentos= y normas de control establecidas.

No obstante, se indica que el control interno es u= n transcurso multidireccional porque influye directamente en todos los procesos del cont= rol previo, y al ponerlo en práctica dentro del campo administrativo, financier= o y del control del área de tesorería aporta a una excelente ejecución de pagos, teniendo en cuentas las normas vigentes para que la gestión de la entidad s= ea transparente y todos los documentos que respalden al comprobante de pago te= ngan sustentos fidedignos y legales.

La cancelación de los deberes a los contratistas, = se originan de la ejecución de los presupuestos institucionales y será ordenado por el responsable de tesorería a la cuenta original del contratista; estos compromisos son registrados únicamente por el responsable en la institución= , su cancelación se lleva a cabo en base al cronograma de programación mensual coordinado y aceptado por el alcalde, teniendo en cuenta que, por ningún mo= tivo se debe efectuar alguna cancelación con dinero en efectivo.

Beneficio, Finalidad y Responsabilidad del Control Previo

Existen varios beneficios al llevar un adecuado control previo como por ejemplo el realizarse con efectividad, eficacia y de manera transparente cada uno de los procesos de pagos, desarrollando las diferentes actividades de forma ordenada, sistemática y cronológica, evitan= do retrasos en los procesos y ayudando a llevar una apropiada utilización de l= os recursos de la entidad.

Tiene como finalidad analizar las diferentes actividades propuestas por la entidad anterior a la cancelación, verificand= o que sea legal, veraz y no sobrepase con lo presupuestado e incumpla con lo planificado por la institución.

Es notorio que los mandatarios y los empleados han reconocido su responsabilidad por establecer, mantener, perfeccionar y evaluar el sistema= de control interno de la entidad pública, así como promover las disposiciones necesarias, para garantizar razonablemente una alta eficiencia en su funcionamiento (Gamboa et al., 2016, p.487).

Pero si nos enfocamos en el proceso cuando llega al departamento financiero, donde debe existir un responsable para realizar el control previo, que se encarga de revisar y que todo esté completo y en legalidad.  A continuación, se dete= rmina un flujo de proceso donde indica las actividades o responsabilidades básicas que los involucrados deben realizar para dicho proceso:

Figura 2

Proceso previo al pago

DIAGRAMA DE FLUJO DE PROCESO PREVIO AL PAGO A CONTRATISTAS – AREA FINANCIERA=

Objetivo. - Establ= ecer lineamientos a seguir en los procedimientos pago de obras.

Alcance. - contempla el procedimiento a seguir desde que la documentación ingresa o llega al área financiera hasta finalmente pasar a tesorería, que es en donde termina con el pago realiza= do.

DIRECTOR

FINANCIERO<= /span>

JEFE DE PRESUPUESTO

 

CONTADORA

ANALISTA CONTABLE

 

TESORERA

INIC= IO

Recibe toda= la documentación

<= /span>

 

 

 

 

 

 

 

 

 

Actualiza la Partida Presupuestaria<= /span>

 

 

 

 

 

 

 

 

Realiza el control previo verificando que la documentación este completa y bajo = las normas legales.

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

Realiza la contabilización del pago, generando el comprobante de movimiento.

 

 <= /o:p>


<= /span>

 

 

 

 

 

 

 

 

Realiza el pago.

 

 

 

 

 


FIN

 

A pesar de que el control previo en toda Instituci= ón Pública es transversal, debido que la responsabilidad es de cada uno de los= que forman parte del proceso, desde el administrador, fiscalizador y funcionari= os de cada dependencia participe previo al pago, se evidencia que la municipal= idad del Cantón Pichincha dispone de un personal encargado de Control Previo en = el departamento financiero delegado de realizar un control minucioso y exhausto de cada pag= o a realizar.

En base a la documentación adquirida se evidencia = que en la Municipalidad del Cantón Pichincha el proceso de pago a contratistas ini= cia desde el momento de cruce de documentos (oficios, informes, planillas y otr= os) por parte del contratista al Administrador de Contrato, quien valida y apru= eba mediante un informe y adjuntado la documentación necesaria remite a la máxi= ma autoridad, solicitando el inicio del pago. Luego, el alcalde previo a la revisión genera la autorización de pago dirigiendo toda la documentación a Dirección Financiera, el director financiero recibe y da paso al encargado = de control previo para que realice las verificaciones y constatación de la documentación necesaria para el pago, donde luego éste notifica a su direct= or alguna observación, caso contrario el proceso sigue su curso, en ese caso p= rocede a la contabilización del mismo, generando comprantes de movimientos y envia= ndo al departamento de tesorería para la cancelación oportuna, donde al final se genera el Opis y comprobante de egreso.

En efecto, se puede deducir que el contar con un r= esponsable de control previo y poniendo en práctica las normas de control interno y manuales de procedimientos o cambio de leyes en la contratación pública, los procesos de pagos empiezan a fluir manera eficaz y eficiente dentro de las entidades públicas, con el objetivo de lograr procesos de pagos más confiab= les. Así mismo, el contar con un flujo interno de procedimientos aporta al pago oportuno a los contratistas por el servicio brindado, mostrando transparenc= ia, efectividad y legalidad del proceso de pago.

Conclusiones<= /b>

·&nb= sp;        Luego del anál= isis efectuado se pudo concluir que, un flujo de procedimientos contribuye a la eficiencia de los procesos de pagos al ser aplicados correctamente en los tiempos establecidos por las normativas del estado ecuatoriano, pero el des= conocimiento de competencias entre funcionarios es uno de los factores que limitan el pa= go de forma oportuna, generando mayor plazo en el proceso.

·&nb= sp;        Para las entid= ades públicas el control previo es una función fundamental y efectiva, que contribuye positivamente en el control interno de la administración, minimizando riesgos para futuras auditorias y logrando cada uno de sus objetivos institucionales.

·&nb= sp;        El control pre= vio es el inicio de los tiempos de control de toda organización, este se realiza internamente antes de la ejecución de cualquier proceso cumpliendo con las normas y objetivos institucionales, respectivamente el control continuo y finalmente con el control posterior. Este último tiempo de control es responsabilidad única del auditor interno de las entidades, en donde no tod= os cuentan con este ente evaluador, el contar con un auditor interno ayuda a fiscalizar el control interno basado en la aplicación del control previo, generando cualquier tipo de recomendaciones de mejora a los diferentes depa= rtamentos y así estar preparados para una futura auditoria por parte de la Contraloría General del Estado.

·&nb= sp;        Una coordinaci= ón eficaz entre la entidad pública con los contratistas puede ser considerada = como una instancia adicional, donde éstos deben conocer el proceso de control pr= evio al pago para que sean veedores de la agilidad y eficiencia del proceso, prevenir demoras en la cancelación y evitar cualquier tipo de suspicacia. El fortalecimiento de este sistema de coordinación es una necesidad predominan= te que todos deben llevar para prevenir problemas en la administración pública= .

Referencias Bibliográficas

Alarcón, G. V. P., & Gallegos, D. N. (2021). Practicas del control previo para evitar corrupciones. Visionario Digital, 5(4), 2602-8506. https://doi.org/10.33262/visionariodigital.v5i4.1896

Bauer, T. C., & Fandiñ= o, M. B. (2021). Solidarismo y Cont= ratos Relacionales: Alternativa frente a la pandemia de COVID-19. Derecho Privado, (41), 0123-4366. doi:  https://doi.org/10.18601/01234366.n41.03

Berbey, E. A. (2018). Incidencia del Control Previo en el Componente de Información y Comunicación de las Empresas Públicas en Panamá: Su relación con la Contabilidad Financiera y Auditoria. Orbis Cognita= . 2(2), 57-73.

Berbey, E. A., Valencia Alderete, M. F., y Charres, H. (= 15 de diciembre de 2018). El Control Previo y Posterior de la Contraloría General de la República, Como cuarta l= ínea de defensa en la Evaluación de la Gestión de Riesgos de las empresas en Pan= amá. Saberes APUDEP. http://portal.amelica.org/ameli/jatsRepo/223/2231203002/index.html

Contraloría General del Estado. (2009). Normas de Control I= nterno de la Contraloría General del Estado 2009-2014. Director del Registro Oficial. file:///C:/Users/Home/Downloads/ACUERDO_039_CG_2009_5_Normas_de_Control_Int= erno.pdf

González Zapata, A., y Mosquera Perea, L. (2020). Del C= ontrol Previo y Perceptivo al Posterior y Preventivo: Estudio de la trayectoria en= el Control Fiscal en Colombia. = Vía Inveniendi Et ludicandi. 15(1), 1909-0528. doi: https://doi.org/10.15332/19090528/5742.

Gamboa Poveda, J., Puente Tituaña, S. P., y Vera, P. Y. (2016). Importancia del Control Interno en el Sector Público. Publicando. 3(8), 487-502.

Hernández, D. F. (2018). <= span style=3D'mso-bidi-font-style:italic'>Gestión del Riesgo y Control, una mira= da tridimensional. Hermes. = 22(), 449-465.<= /p>

López Jara, A. A., & Cañizares Roig, M. (2018). El Co= ntrol Interno en el Sector Público ecuatoriano. Caso de Estudio: Gobiernos Autóno= mos Descentralizados Cantonales de Morona Santiago. Cofín Habana.12(2), 51-72.

Mendoza Zamora, W. M., Del= gado Chávez, M. I., García Ponce, T. Y., y Barreiro Cedeño, I. M. (2018). El Control Interno y su influencia en = la Gestión Administrativa del sector Público. Dominio de las ciencias. 4(4), 2477-8818. doi: http://dx.doi.org/10.23857/dom.cien.pocaip.2018.vol.4.n.4.206-240

Ortiz Mosquera, G. (2021).= Control Interno Coso ERM aplicado al T= alento Humano del Sector Público en Ecuador. Enfoques. 5(1= 7), 32-39.

Pereira Palomo, C.A. (2019). Control Interno en las empresas: Su aplicación y efectividad. (= 1° ed.). Instituto Mexicano de Contadores Públicos, A.C.

Plan Nacional de Desarrollo.  (2014). Reglamento del Código Orgánico de Planificación y Finanzas Públicas= . Presidente Constitucional de la Republica. https://www.epn.edu.ec/wp-content/uploads/2015/06/14REGLAMENTOFINANZASPUBLI= CAS1.pdf

Rhein Schirato, V. (2019). = El Control Interno de la Administración Pública y la Configuración del Estado Contemporáneo. Revista de la Facultad de Jurisprudenc= ia. 2(5), 51-95.<= /p>

Roca = Perara, M. (23 de julio de 2020). Legitimando la Investigación Cualitativa. Revista Habanera de Ciencias Médicas. http://www.revhabanera.sld.cu/index.php/rhab/article/view/3577

Rodríguez, E., Rivera C., & Castillo T. (2018). Insatisfacción con el sistema nacional de contratación pública: una visión = del contratista en ejecución de obras. = Nova Sinergia, 1(1), 2631- 2654. doi: https://doi.org/10.37135/unach.ns.001.01.10

Rojas, M. D., Acevedo, N. = M., y Jiménez, L. M. (2017). Propues= ta de modificación financiera para el proceso de contratación estatal: Caso aplic= ado. Espacios. 38.(53), 2.

Servicio Nacional de Contratación Pública. (2008). Ley Orgánica del Sistema Nacional de Contratación Pública 2008-2018.  Presidente Constitucional de la Republi= ca. https://www.epn.edu.ec/wp-content/uploads/2018/08/Ley-Org%C3%A1nica-de-= Contrataci%C3%B3n-P%C3%BAblica.pdf

Teixeira, J. V., & Ram= os Lamenha, A. A. (2019). Índices de transparencia y gestión en las entidades Públicas como herramienta de contr= ol y desempeño: Una comparación entre indicadores municipales en Alagoas-Brasil.= Visión Futuro. 23(1), 75-96.

Velásquez Vásquez, E. (2019). Control Interno y Desarrollo Local de las Municipalidades. Jornal of Academy, (1), 32-43.

&nbs= p;

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

 

El artículo que se publica es de exclusiva responsabilidad de los autores y no necesariamente reflejan el pensamiento = de la Revista Conciencia Digital.

&nbs= p;

 


El artículo queda en propiedad de la revista y, por tanto, su publicación parcial y/o total en otro medio tiene que ser autoriz= ado por el director de la Revista Conc= iencia Digital.

 

 

 


&nb= sp;

 

 

 

 

 

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ISSN: <= b>2600-5859

Vol. 5 = No 2.1,  pp. 222 – 240 , mayo 2022

 

 

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