Contratos Administrativos: Contrato de concesión de obras y servicios públicos: nulidad; prestaciones realizadas y no retribuidas

• Páginas: 15-112

Contratos Administrativos:

Contrato de concesión de obras y ser-

vicios públicos: nulidad; prestaciones

realizadas y no retribuidas.

NF

Con nota a fallos de Pedro J. J. Coviello - pág. 36

1 – Por lo dispuesto en el art. 280 del cód. procesal

civil y comercial de la Nación, cabe considerar in-

admisible el recurso extraordinario interpuesto

contra la sentencia que hizo lugar a la pretensión

de pago de sumas equitativas por las prestaciones

realizadas por la actora a la Administraci ón ac-

cionada, en virtud de un contrato de concesión de

obras y servicios públicos anulado, que no fueron

retribuidas.

2 – Cuando el vicio radica en un elemento esencial

del acto administrativo, como es en el caso la ob-

servancia de las formas establecidas por las leyes

y los reglamentos en funció n del interés público,

nos hallamos ante una nulidad absoluta. Si bien en

el ámbito del derecho privado la nulidad absoluta

no puede ser alegada por el que ha ejecutado el

acto, sabiendo o debiendo saber el vicio que lo in-

validaba (doctrina de los arts. 1047, 1049 y 1164,

cód. civil), en materia de derecho administrativo

tal limitación no es aplicable, en virtud de impe-

dirlo el “interés público” a satisfacer por la Admi-

nistración Pública con su actividad 89@:5@@C89@5

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3 – Dado que el contrato de concesión de obras y

servicios públicos motivo de autos carece de las

formas prescriptas por la ley que hacen a su vali-

dez y regularidad, es nulo de nulidad absoluta, en

tanto lesiona directamente al “interés público” que

dichas formas pretenden salvaguardar. Por lo cual,

la resolución culpable imputada a la Administra-

ción demandada no puede ser admitida y, en con-

secuencia, debe desestimarse la acción de indem-

nización de daños por incumplimiento contractual

planteada por la actora, así como el cobro de fac-

turas pretendido, pues la admisibilidad de tales

pretensiones se encuentra condicionada a la vali-

dez del aludido c ontrato. En efecto , la nulidad

extingue los derechos que se hubieran creado o

transmitido en virtud del acto nulo o anulado por

sentencia del fallo 89@:5@@C89@5&=JG5@5%



4 – A pesar de que el contrato de obras y servicios

públicos motivo de autos es nulo de nulidad abso-

luta por carecer de las formas prescriptas por la

ley, lo cierto es que la actora realizó trabajos para

la dem andada en virtud del mismo, po r lo cua l,

dado que dichos trabajos no pueden ser conside-

rados una liberalidad en favor de la Administra-

ción, corresponde reconocer a su favor una com-

pensación, la cual

encuentra fundamento en la nu-

lidad o en la ineficacia del negocio, sin necesidad

de acudir a la figura del enriquecimiento sin causa

y a la 57H=C=BF9AJ9FGC, que es siempre subsidia-

ria 89@:5@@C89@5&=JG5@5%

5 – En el caso, coinciden las pautas para determinar

el monto que debe reconocerse a la contratista en

concepto de restitución derivada de la nulidad del

contrato de obras y servicios públicos que la unía

a la accionada, ya sea que su valoración resulte de

las pautas del art. 1052 del cód. civil o de la teoría

del enriquecimiento sin causa, pues norma del art.

1052 del cód. civil no es sino la recepción, en ma-

teria de nulidades, de la teoría del enriquecimiento

sin causa, y, sobre esa base, cabe declarar el dere-

cho a reclamar el precio o el valor de lo ejecutado

o entregado en beneficio de la Administración, en

la med ida en qu e los tra bajos ejecutados por la

contratista fueron ordenados por la comitente y re-

portaron a ésta un beneficio cuya prestación debe

ser reconocida 89@:5@@C89 @5&=JG5@5%

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6 – Dictada la sentencia anulatoria del contrato de

obra pública motivo de autos, dado que el mismo

ha tenido algún efecto, a fin de que las partes sean

puestas en la situación que habría tenido si no se

hubiera cumplido el acto, tienen que restituirse las

prestaciones ejecu tadas, hasta dejar las cos as

como ante s de dicha ejecución. Sin embargo, no

ofreciendo ni pudiendo restituir la demandada las

prestaciones realizadas por la actora y rigiendo a

JURISPRUDENCIA

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ese respecto lo normado por el art. 1201 del cód.

civil, aplicable por analogía al caso, la restitución

aludida se limitará al reembolso de las sumas in-

vertidas por la actora por trabajos no remunera-

dos, que incrementaron el patrimonio municipal,

causando un correlativo empobrecimiento a la ac-

cionante 89@:5@@C89@5&=JG5@5%

7 – Si bien es cierto que, en otra oportunidad, esta

sala apli có directamente la teoría del enriqueci-

miento sin causa, para fundar el derecho del con-

tratista de obra a reclamar el pago de las presta-

ciones efectuadas a favor de la Administración en

virtud de un contrato luego declarado nulo, no ha-

ciéndose referencia a las restituciones derivadas de

la nulidad del acto administrativo, no lo es menos

que, en el caso, más allá del encuadre en las figu-

ras jurídicas mencionadas (restitución por la nuli-

dad, daño al interés negativo, enriquecimiento sin

causa), el monto que de be reconocerse a la con-

tratista se limitará al reembolso de las sumas in-

vertidas por ella por trabajos no remunerados, que

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bierno de la Ciudad de Buenos Aires s/ordinario (C.347.

XLVIII-R.H.).

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HF585GM5F7Elena I. Highton de Nolasco.

– Carlos S. Fayt. – Enrique S. Petracchi. – Car-

men M. Argibay.

Contratos Administrativos:

Contrato de locación de obra intelec-

tual con relación a la obra pública:

prestaciones realizadas sin respaldo

contractual; pago; procedencia; enri-

quecimiento sin causa; aplicación en

materia administrativa.

NF

Con nota a fallo

1 – Por lo dispuesto en el art. 280 del cód. procesal

civil y comercial de la Nación, cabe considerar in-

admisible el recurso extraordinario interpuesto

contra la sentencia que, sobre la base de la figura

del enriquecimiento sin causa, resolvió que la ad-

ministración demandada debía abonar a la actora

los trabajos por ella realizados, aun cuando el re-

clamo no tuviese respaldo contrac tual, por no

haber sido estos autorizados reglamentariamente

por autoridad competente dentro de las estipula-

ciones contractuales 89@ :5@@C89 @5&=JG5@5

%.

2 – Si bien es cierto que los trabajos –cuyo cobro se

reclama– no fueron aut orizados reglamentaria-

mente por autoridad competente dentro de las esti-

pulaciones contractuales, no lo es menos que, sin

perjuicio de las responsabilidades funcionales en

que pudieron haber incurrido los autorizantes, la

accionante cumplió con exigencias de funcionarios

estatales que la pudieron llevar a creer que las ta-

reas realizadas se rían retribuidas, por lo cual ra-

zones de equidad, y más allá de no tratarse de una

contratación, llevan a concluir que deben ser con-

cretadas a través de la figura del enriquecimiento

sin causa, aplicable también en materia adminis-

trativa; debe, en consec uencia, la acci onada ser

condenada al pago del beneficio obtenido con los

servicios prestados 89@:5@@C89@5&=JG5@5%

.

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3 – En nuestro sistema, de corte netamente causalista,

la acción de enriquecimiento sin causa no procede

cuando el desplazamiento patr imonial tiene su

razón de ser en un contrato, aunque éste –como en

el caso– resulte nulo, anulable o ineficaz, por no ha-

berse seguido las normas de contratación estable-

cidas y haber intervenido funcionarios no compe-

tentes para ello; en tales supuestos la obligación de

restituir encuentra fundamento en la nulidad o en

la ineficacia del negocio, sin necesidad de acudir a

la figura del enriquecimiento sin causa y a la 57H=C

=BF9A J9FGC que es siempre subsidiaria. Por lo

cual, la restitución de lo invertido por el actor –lo-

cador de obra pública– resulta consecuencia obli-

gada de la ineficacia del negocio, pues si las partes

no estuviesen obligadas a restituir se llegaría al ab-

surdo resultado de que un contrato que el propio de-

recho objetivo declara ineficaz a la postre deviniera

eficaz 89@:5@@C89@5&=JG5@5% JCHC

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4 – Aun cuando la distinción entre la devolución a la

actora de lo invertido por ella a raíz de un contrato

de obra pública, luego declarado nulo, derivada de

la nulidad del acto y la derivada por aplicación del

enriquecimiento sin causa parece carecer de con-

secuencias prácticas para la solución del caso,

pues ambas son acciones de reintegro y las pautas

para la fijación de las sumas a reintegrar en el caso

coinciden, el monto fijado para compensar el enri-

quecimiento sin causa parece insuficiente a la luz

de los valores acreditados para contratos simila-

res, que resultan de las constancias agregadas, cir-

cunstancia que es consecuencia de la carencia de

bases precisas para su determinación, por lo cual,

para no afectar las garantías del debido proceso,

cabe diferir la determinación del monto de la con-

dena para la etapa de ejecución de sentencia, me-

diante un incidente de determinación de dicha can-

tidad y sobre la base de una ampliación del informe

contable, de prueba informativa, de un informe pe-

ricial o de las medidas que soliciten lo s conten-

dientes, que permitan contar con bases ciertas para

establecer la suma que corresponde reconocer a

favor de la empresa actora 89@:5@@C89@5&=J

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826 – CS, noviembre 28-2013. – Ingeniería y Asistencia

Técnica Argentina S.A. de Servicios Profesionales c. Muni-

cipalidad de la Ciudad de Buenos Aires s/cobro de pesos

(I.33.XLVIII-R.H.).

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in rem verso”7CB796=857CACIB5 GC@I7=UB89

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F=EI97=A=9BHCG=B75IG5M5@5actio in rem verso

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Instituciones de Derecho Privado, Obligaciones

5AAIF56=DQ;G

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85B7=57CB9@ 9GH56@979EI9“la anulación

del acto obliga a las partes a restituirse mutua-

mente lo que han recibido o percibido en virtud o

por consecuenc ia del acto anul ado”$5BCFA5

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7=H58CDCF 5F=6CHHC"“Teoría general del

acto juríd ico”9D5@A5DM5@@CG

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BI@=85889@7CBHF5HC A=9BHF5GEI9 @5577=UB“in

rem verso”G9F97CBC795EI=9B=A9BH58C

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758C7CB:(=N5FFC.5@@9GD=BCGob. cit.D

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GI=B9:=757=5MEI99@5D5FH5A=9BHC89@5G:CFA5G

9GH56@97=85G=AD=89H9B9FDCFDFC658C9@7CBHF5HC

DCF@5G5AD@=57=CB9GF97@5A585G8=7H5A9B5@EI9

589@F97IFGC9LHF5CF8=B5

F=C:989F5@

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D97HC89@5BI@=8588=GDI9GH5DCF897F9HC89@

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1Visto

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8585DCF@CGHF565>CG9>97IH58CG9BGI 69B9:=7=C

7CB=BH9F9G9G@=EI=858CG 9B@5 :CFA59GH56@97=85

DF97989BH9A9BH9CB7CGH5G9B9@CF89B75IG58C

*9;SGHF9G9BCH=:SEI9G9M89JIR@J5G9[ Elisa

M. Díaz De Vivar. – Fernando Posse Saguier. –

Mabel De los Santos 9B8=G=89B7=5D5F7=5@ +97

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Vistos @CG5IHCG\*97IFGC89

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DFC7989B7=5

Considerando

Sumario: I. EL ENRIQUECIMIENTO SIN CAUSA EN EL

DERECHO CIVIL. – II. SUEXTENSIÓN AL DERECHO AD-

MINISTRATIVO. A. LA DOCTRINA. B. LA JURISPRUDEN-

CIA. – III. LOS PRONUNCIAMIENTOS COMENTADOS. A.

“CASE C. GOBIE RNO DE LA CIUDAD DE BUENOS

AIRES”. B. “IATASA (INGENIERÍA Y ASISTENCIA TÉC-

NICA ARGENTINA S.A.) C. MUNICIPALIDAD DE LA CIU-

DAD DE BUENOS AIRES” (DEL 19-10-10). – IV. UNA

CONCLUSIÓN CRÍTICA.

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I

El enriquecimiento sin causa en el derecho

civil

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H=:SEI9G9M5F7– Carlos S. Fayt. – Elena I.

Highton de Nolasco. – Carmen M. Argibay. – En-

rique S. Petracchi.

Dos pronunciamientos de la Corte Suprema

relacionados con el enriquecimiento

sin causa en la contratación pública

102  8   

NF

&',  *!b& +C6F99@H9A5J9F589AQG @CGG=

;I=9BH9GHF565>CGDI6@=758CG9B$* 'Los contratos

administrativos y el enriquecimiento sin causaDCF$-*

%%' &,! E l derecho penal argenti no

frente al fenómeno de la corrupción. El delito de enriqueci-

miento ilícito DCF -!$$*%' *!$ ,'* $$' (

El elemento “causa” como c atalizador d e la

transparencia en la contratación pública. Su reflejo en el de-

creto 893/12DCF1$O& & a ,'%+!&! 8=5F=CBY

89@ Enriquecimiento ilícito y derecho he-

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5HU@=75F;9BH=B5

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quecimiento sin causa en la contratación pública9B XII

Foro Iberoamericano de Derecho Administrativo. Contrata-

ción Pública. Doctrina nacional e internacional$=A5

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89A5B858C

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A=9BHC

8Relación causal 9BHF99@9BF=EI97=A=9BHCM

9@9ADC6F97=A=9BHC

9Inexistencia de precepto legal EI99L7@IM5@5

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GC@IHCGDI9GHCEI9 7CACDCF

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II

Su extensión al derecho administrativo

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F97

A. La doctrina

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D@=75@5acreditación, no sólo del aumento o enri-

quecimiento del patrimonio del obligado a la res-

titución  sin o del correspondiente y propor-

cional empobrecimiento del actor EI9BC9G

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7=UB8969G9Fprevisto al incoarse la demanda, así

como también que la carga de su prueba corres-

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indispensable invocación y prueba del empobre-

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=ADCFH989@CEI9G9896=9F5F9GH=HI=FD5F5evitar

que la comuna se enriquezca a expensas del

patrimonio del particular sin c ompensación al-

guna”.

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III

Los pronunciamientos comentados

A. “CASE c. Gobierno de la Ciudad de Buenos

Aires”

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;IB8C5D@=7U8=7

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B. “IATASA (Ingeniería y Asistencia Técnica

Argentina S.A.) c. Municipalidad de la Ciudad

de Buenos Aires” (del 19-10-10)

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IV

Una conclusión crítica

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