Imprima este artículo

N° 66, 2011
pp. 443-468
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CONTENIDO: PRESENTACIÓN.– I. EFICACIA VINCULANTE DE LOS CONTRATOS
DE LAS ENTIDADES ESTATALES.– II. LA MUTABILIDAD DE LOS CONTRATOS
DE LA ADMINISTRACIÓN.– III. LOS MODOS DE LA MODIFICACIÓN
CONTRACTUAL.– IV. LOS MOTIVOS DE LA MODIFICACIÓN CONTRACTUAL.–
V. LOS FINES DEBIDOS DE LA MODIFICACIÓN CONTRACTUAL.– VI. LOS
LÍMITES DE LA MODIFICACIÓN DE LOS CONTRATOS.– VII. MODIFICACIONES
IMPUESTAS POR EL DERECHO.– VIII. LAS “TEORÍAS” SOBRE EL MANTENIMIENTO
DE LA ECUACIÓN ECONÓMICO–FINANCIERA DE LOS CONTRATOS DE LA
ADMINISTRACIÓN.– IX. ADMISIÓN DE LA MUTABILIDAD DE LOS CONTRATOS
DE LA ADMINISTRACIÓN POR EL TRIBUNAL DE CUENTAS DE LA REPÚBLICA.–
X. CONCLUSIÓN.
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
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MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
KKW
MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
J U A N PA B L O C A J A R V I L L E P E L U F F O
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
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DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
V. LOS FINES DEBIDOS DE LA MODIFICACIÓN CONTRACTUAL
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
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KZZ
MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
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V I . LOS LÍMITES DE LA MODIFICACIÓN DE LOS CONTRATOS
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
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KZV
MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
V I I . M O D I F I C AC I O N E S I M P U E S TA S P O R E L D E R E C H O
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
,&;!*!&#*+P)$&%3#-+(*".%,"#/(-"(+#+#/$#*+:#."(*QZN+(+%-"(3.#-+(&+'(.(,2)+
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KZW
MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
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VIII. LAS “ TEORÍAS” SOBRE EL MANTENIMIENTO
DE LA ECUACIÓN ECONÓMICO-FINANCIERA
D E L O S C O N T R AT O S D E L A A D M I N I S T R A C I Ó N
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J U A N PA B L O C A J A R V I L L E P E L U F F O
VIII.1. Hechos ajenos a las partes
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
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K[N
MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
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Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
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.;+B!(+(&+:.%-,%:%)+'(+%3!#&'#'@+$#*(+'(+-!(*".)+).'(-#/%(-")+C!.9'%,)@+
(-+*!+(*:(,%5%,#,%0-+'(+P%3!#&'#'+#-"(+&#*+,#.3#*+:`$&%,#*Q@+%/:)-(+&#*+
*)&!,%)-(*+B!(+:#".),%-#+(*"#+"().9#[Z>+S)+(*+#'(,!#')+#+(*"(+:.%-,%:%)+
B!(@+ :#.#+ *#"%*5#,(.+ (&+ %-"(.X*+ 3(-(.#&+ B!(+ &#+ #'/%-%*".#,%0-+ :(.*%3!%0+
#&+,)-".#"#.@+*(+)$&%3!(+#+!-+:#."%,!&#.+#+*#,.%5%,#.*(+2#*"#+&#+.!%-#+:#.#+
,!/:&%.+&)+:#,"#')>+L#+(-"%'#'+(*"#"#&+#+&#+B!(+*(+2#+,)-5%#')+&#+*#"%*5#,<
,%0-+'(+#B!(&+%-"(.X*+3(-(.#&+(-+:)*+'(&+,!#&+,)-".#"0+)@+(-+*!+,#*)@+&)*+
$(-(5%,%#.%)*+'%.(,")*+(+%-'%=%'!#&%M#')*+'(&+*(.=%,%)+)+'(+&#+)$.#+'($(-+
,)-".%$!%.+(B!%"#"%=#/(-"(+#&+&)3.)+'(+#B!(&&#+*#"%*5#,,%0->
_T!2)B)!092!&)2"@!=&%$%,.BD!&+6+!//@!>=@!$*&@D!;)''#E+%!\ATD!;@!\K!,!;)''#E+%!\AID!;@!_T@
_[!&'*+'+"(7"5)!'@!>=@!$*&@D!;@!AT\JAT_^!1'&.-)$$"@!M:010?+$*#$*C1!(0!-#%!&#'*E#%iO@(>=@!$*&@
_I!"%! 0-! E21(#601&+! R20! '0$+?01! 2)B)!092! &)2"4( =&%$%,.BE! &+6+! //@! >=@! $*&@D! ;)''#E+%! \AID! ;@! _A^! ,!
&'*+'+"(7"5)!'@!>=@!$*&@D!;@!ATI@
_\!1'&.-)$$"@!>=@!$*&@D!;@!TT\@!N#6=*b1!%0!4#!E21(#601&#(+!-#!&0+'V#!01!-#!10$0%*(#(!(0!#%0?2'#'!0-!
=201!E21$*+1#6*01&+!(0-!%0'7*$*+D!;+'!01(0!01!'#S+10%!(0!*1&0'b%!?010'#-!,!01!-#!&2&0-#!,!?#'#1&V#!
;-01#!(0-!(0'0$4+!(0!;'+;*0(#(!(0-!$+$+1&'#&#1&0@!fb#%0!+0"55"@!>=@!$*&@D!;@!`KJHA@
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
8*"#+ "().9#+ *(+ #:&%,#+ #!-+ #+ 5#&"#+ '(+ .(3!&#,%0-+ #&3!-#+ (-+ (&+ ,)-".#")@+
,)/)+:.%-,%:%)+3(-(.#&+'(+&#+,)-".#"#,%0-+#'/%-%*".#"%=#[[@+!-%=(.*#&<
/(-"(+#'/%"%')+:).+&#+'),".%-#+4+&#+C!.%*:.!'(-,%#@+#*9+,)/)+:).+-!(*".#+
:.;,"%,#+#'/%-%*".#"%=#>
L#*+,#.#,"(.9*"%,#*+*%/%&#.(*+'(+&)*+#,)-"(,%/%(-")*+O#C(-)*+#+&#*+:#.<
"(*@+%/:.(=%*%$&(*@+%..(*%*"%$&(*O+B!(+,)-'%,%)-#-+&#+#:&%,#,%0-+'(+#/$#*+
"().9#*+:&#-"(#+&#+,!(*"%0-+'(+*!+(=(-"!#&+#,!/!&#,%0-+#-"(+!-+/%*/)+
(=(-")>
8*#+#,!/!&#,%0-+-)+(*+:)*%$&(+(-+")'#*+&#*+2%:0"(*%*+(-+B!(+*(+".#"(+'(+
!-+#,)-"(,%/%(-")+B!(+:.)=)B!(+&#+%/:)*%$%&%'#'+'(5%-%"%=#+'(+,!/:&%<
/%(-")@+#$*)&!"#+)+.(&#"%=#>+8-+"#&+,#*)@+*%+&#+%/:)*%$%&%'#'+.(,#(+*)$.(+&#+
*!*"#-,%#+,)-".#,"!#&@+(&+,)-".#")+*(+(A"%-3!(+*%-+.(*:)-*#$%&%'#'+:#.#+(&+
,)-".#"#-"(+%-,!/:&%').@+4+-)+,#$(+#:&%,#.+&#+P"().9#+'(+&#+%/:.(=%*%0-Q@+
B!(+:.(*!:)-(+&#+*!:(.=%=(-,%#+'(&+,)-".#")>
K[U
MUTABILIDAD
DE LOS
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
J!-+,!#-')+(-+!-#+'("(./%-#'#+,%.,!-*"#-,%#+'(+2(,2)+,)..(*:)-'#+
&#+ #:&%,#,%0-+ #,!/!&#"%=#+ '(+ #/$#*+ "().9#*@+ *!*+ .(*:(,"%=)*+ ;/$%")*+
,)-,(:"!#&(*+ :(./#-(,(-+ -9"%'#/(-"(+ '%5(.(-"(*>+ L#+ P"().9#+ '(+ &#+
%/:.(=%*%0-Q+-)+#"#e(+#+&#+.(:#.#,%0-+'(+&)*+'#e)*+,#!*#')*+#+!-+,)-".#"#-"(+
E#,.((').+'(+&#+)$&%3#,%0-+%-,!/:&%'#F+:).+!-+%-,!/:&%/%(-")+".#-*%").%)+
'(&+)".)+,)-".#"#-"(+),#*%)-#')+:).+!-+(=(-")+'(+5!(.M#+/#4).@+*%-)+#+&#+
.(:#.#,%0-+'($%'#+#+(*(+)".)+,)-".#"#-"(@+'(!').+'(+&#+)$&%3#,%0-+B!(+-)+
*(+:!')+,!/:&%.@+(-+.#M0-+'(+&#+/#4).+)-(.)*%'#'+B!(+,#!*#.;+#B!(&&#+
:)*"(.3#,%0-+'(&+,!/:&%/%(-")+:.)=),#'#+:).+(&+(=(-")+'(+5!(.M#+/#4).>
__!B#!(+$&'*1#!1#$*+1#-!0%!*1$-2%+!6)%!&0'6*1#1&0D!;20%!%+%&*010!R20!M-#%!$-)2%2-#%!$+1701$*+1#-0%!1+!
;20(01! ;'070'! &+(#%! -#%! %*&2#$*+10%! R20! 01! -+%! 40$4+%! ;20(01! &010'! -2?#'! ,! R20! -#! 0.*%&01$*#! (0!
-#%! 6*%6#%! p%*$q! 1+! $+1%&*&2,0! +=%&)$2-+! %2E*$*01&0! ;#'#! -#! #;-*$#$*C1! (0! -#%! %+-2$*+10%! (0! -#! &0+'V#!
(0! -#! *6;'07*%*C1O@! &'*+'+"( 7"5)!'@! >=@! $*&@D! ;@! A[L@! ]+1E'C1&0%0! 0-! N'*=21#-! (0! -+! ]+1&01$*+%+!
5(6*1*%&'#&*7+D!%01&01$*#!XY!A_L!(0!T`JIJH`_D!01!0-!/2'%&".(, (9 & 5:.(%,1"2"#$&%$"!.D!&+6+!/D!XY!AA`D!
Z+1&07*(0+D!AH`KD!;@!TK@
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
?(.)+,!#-')+(&+#,)-"(,%/%(-")+(-+,!(*"%0-+:.)=),#+*)&#/(-"(+!-#+%/<
:)*%$%&%'#'+".#-*%").%#+'(+(C(,!,%0-@+&#+#,!/!&#,%0-+'(+#/$)*+%-*"%"!")*+
4+'(+*!*+.(*:(,"%=)*+(5(,")*+*(+%/:)-(>+8&+'(!').+-)+*(.;+.(*:)-*#$&(+'(+
&)*+'#e)*+4+:(.C!%,%)*+B!(+:.)'!M,#+#&+)".)+,)-".#"#-"(+&#+'(/).#+(-+&#+
(C(,!,%0-+),!..%'#+:).+5!(.M#+/#4).+4+-)+'($(.;+:).+(-'(+.(:#.#.&)*g+
4@+'#')+(&+,#.;,"(.+".#-*%").%)+'(+&#+%/:)*%$%&%'#'+'(+,!/:&%/%(-")@+&#*+
)$&%3#,%)-(*+4+(&+,)-".#")+/%*/)+*!$*%*"(-@+*%-+:(.C!%,%)+'(+&#+*!*:(-*%0-+
'(+*!+(A%3%$%&%'#'>+\%+#'(/;*+(&+#,)-"(,%/%(-")+(-+,!(*"%0-+:.)=),#+!-#+
#&"(.#,%0-+*!*"#-,%#&+4+".#-*%").%#+'(+&#+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+
'(&+,)-".#")+(-+:(.C!%,%)+'(&+,),)-".#"#-"(@+&#+#:&%,#,%0-+'(+&#+P"().9#+'(+
&#+%/:.(=%*%0-Q+)$&%3#.;+#+.(,)-),(.&(+(&+'(.(,2)+#+!-#+,)/:(-*#,%0-+
'($%'#+:).+&#+#'/%-%*".#,%0->
K[K
VIII.2. Circunstancias materiales preexistentes
1!.#-"(+&#+(C(,!,%0-+'(+!-+,)-".#")+:!('(-+,)-),(.*(+,%.,!-*"#-,%#*+
/#"(.%#&(*+#-)./#&(*+.(&#"%=#*+#&+)$C(")+'(+&#*+)$&%3#,%)-(*+'(&+,)-".#<
"#-"(+)+#+&)*+$%(-(*+*)$.(+&)*+B!(+'($#-+(C(,!"#.*(@+B!(+:.((A%*"9#-+#+
*!+,(&($.#,%0-[V@+:(.)+-)+5!(.)-+,)-),%'#*+-%+:.(=%*"#*+4+(.#-+.#M)-#<
$&(/(-"(+%/:.(=%*%$&(*+:#.#+&#*+:#."(*+#&+/)/(-")+'(+,)-".#"#.>+8*"#*+
,%.,!-*"#-,%#*+/#"(.%#&(*+-)+2#,(-+%/:)*%$&(+(&+,!/:&%/%(-")@+:(.)+%-<
,%'(-+(-+&#+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+4+&#+").-#-+/;*+)-(.)*#+:#.#+
(&+,)-".#"#-"(>+?).+&#*+,#.#,"(.9*"%,#*+'(&+(=(-")@+*!+:)*%$%&%'#'+*(+*(e#&#+
3(-(.#&/(-"(+(-+.(&#,%0-+,)-+&)*+,)-".#")*+B!(+%/:&%,#-+&#+(C(,!,%0-+
'(+!-#+)$.#+:`$&%,#@+#!-B!(+"(0.%,#/(-"(+:!('(+,)-,($%.*(+*!+#,#(,%<
/%(-")+(-+,)-".#")*+,)-+)".)+)$C(")>+
8*"#*+,%.,!-*"#-,%#*+-)+(A%/(-+#&+,)-".#"#-"(+'(+,!/:&%.+,)-+&#*+)$&%3#<
,%)-(*+#*!/%'#*@+:(.)+3(-(.#-+(-+*!+5#=).+(&+'(.(,2)+#+*(.+9-"(3.#/(-"(+
%-'(/-%M#')@+"#-")+'(&+'#e)+(/(.3(-"(+,)/)+'(&+&!,.)+,(*#-"(>+8-+*!+
).%3%-#.%#+'(-)/%-#,%0-+5.#-,(*#@+*(+".#"#+'(+&#+,)-),%'#+"().9#+'(+&#*++-;
=G'%,&+$%:)(G.-"++)+P"().9#+'(+&#*+*!C(,%)-(*+!+)$&%3#,%)-(*+%/:.(=%*"#*Q[]>
\%+ &#*+ '%5%,!&"#'(*+ %/:.(=%*"#*+ '(+ (C(,!,%0-+ '(&+ ,)-".#")+ :.)=),#-+ !-#+
#&"(.#,%0-+.#'%,#&+(-+&#+(,!#,%0-+,)-".#,"!#&@+(&+'(.(,2)+#+&#+,)/:(-*#,%0-+
%-"(3.#&+(-+5#=).+'(&+,)-".#"#-"(+*!.3(+#!-+,!#-')+(&+,)-".#")+2!$%(.#+
:.(=%*")+!-+:.(,%)+3&)$#&+:.('("(./%-#')+:).+)$.#*+"#/$%X-+3&)$#&/(-"(+
:.(=%*"#*@+)+,!#-')+:).+)".#+=9#+*(+2!$%(.#+:.(=%*")+&#+(A,&!*%0-+'(+/#4).+
:.(,%)+:).+/#4).(*+,)*")*@+:).+,!#-")+*(+,)-*%'(.#+B!(+(*#*+:.(=%*%)-(*+
,)-".#,"!#&(*+,!$.(-+&#*+'%5%,!&"#'(*+-)./#&(*+4+:).+(&&)+.#M)-#$&(/(-"(+
:.(=%*%$&(*+'(+(C(,!,%0-+'(+&#*+)$&%3#,%)-(*+,)-".#,"!#&(*@+:(.)+-)+&#*+
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J U A N PA B L O C A J A R V I L L E P E L U F F O
VIII.3. Hechos o actos imputables a la administración
D%-#&/(-"(@+&#+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+'(&+,)-".#")+:!('(+=(.*(+
"#/$%X-+#&"(.#'#+'!.#-"(+*!+(C(,!,%0-+:).+!-#+#,"!#,%0-+O#,")+)+2(<
,2)O+'(+&#+#'/%-%*".#,%0-+,)-".#"#-"(VY@+#..(3&#'#+#+1(.(,2)VN@+,!/<
:&%'#+ (*:)-";-(#/(-"(VT+ (-+ (C(.,%,%)+ '(+ *!*+ :)"(*"#'(*+ :`$&%,#*+ 4+ -)+
_K!+0"55"@!>=@!$*&@D!;;@!HAJHT@
_`!2)B)!092!&)2"@!=&%$%,.BD!&+6+!//@!>=@!$*&@D!;)''#E+%!\I`!,!\IHD!;;@!H[JH\^!&'*+'+"(7"5)!'@!>=@!$*&@D!
;@!ATAJATT!,!ATKJAT`^!+0"55"@!>=@!$*&@D!;;@!HAJHT^!1'&.-)$$"@!>=@!$*&@D!;;@!TT\JTT_@
_H!&'*+'+"(7"5)!'@!>=@!$*&@D!;;@!ATAJATT@
KL!U*!E20%0!21#!#$&2#$*C1!(0!+&'#!#(6*1*%&'#$*C1D!;+('V#!&'#&#'%0!(0!21#!4*;C&0%*%!(0!#;-*$#$*C1!(0!-#!
M&0+'V#!(0!-#!*6;'07*%*C1O!+!*1$-2%+!(0!'0%;+1%#=*-*(#(!0.&'#$+1&'#$&2#-!(0!0%#!+&'#!#(6*1*%&'#$*C1D!
%0?<1!0-!$#%+@!&'*+'+"(7"5)!'@!>=@!$*&@D!;@!ATT!,!AT`JATH^!+0"55"@!>=@!$*&@D!;@!`AJ`T@!"1!$+1&'#!0%&)!
2)B)!092!&)2"@!=&%$%,.BE!&+6+!//@!>=@!$*&@D!;)''#E+%!\A[D!;@!_L@!"-!#2&+'!%+%&*010!R20!0%!*1(*E0'01&0!
R20!0-!#$&+!06#10!(0!-#!;0'%+1#!;<=-*$#!$+1$0(01&0!+!(0!+&'#!;0'%+1#!;<=-*$#!(*%&*1&#@
KA!U*!-#!#$&2#$*C1!(0!-#!#(6*1*%&'#$*C1!E20'#!*-0?V&*6#D!%0!&'#&#'V#!(0!21#!4*;C&0%*%!(0!'0%;+1%#=*-*(#(!;+'!
*-0?*&*6*(#(D!$+1&'#$&2#-!+!0.&'#$+1&'#$&2#-D!%0?<1!0-!$#%+@!fb#%0!&'*+'+"(7"5)!'@!>=@!$*&@D!;@!ATTD!,!
+0"55"@!>=@!$*&@D!;@!`L@
KT!"1!0-!%01&*(+!(0!1+!;'+7+$#(#!+!'0R20'*(#!;+'!0-!$+$+1&'#&#1&0!1*!;+'!$*'$21%&#1$*#%!0.&'#+'(*1#'*#%!
#G01#%!#!-#%!;#'&0%D!4*;C&0%*%!0%&#!<-&*6#!01$#'&#=-0!01!-#!M&0+'V#!(0!-#!*6;'07*%*C1O@!&'*+'+"(7"5)!'@!
>=@!$*&@D!;@!ATT^!1'&.-)$$"@!>=@!$*&@D!;@!TTI^!+0"55"@!>=@!$*&@D!;@!`L@
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
K[Z
'(+5#,!&"#'(*+,)-".#,"!#&(*VU@+:).+(-'(+-(,(*#.%#/(-"(+!-%&#"(.#&VK@+
*!$C("%=#+)+3(-(.#&VZ@+%/:.(=%*"#+#&+,)-".#"#.V[@+B!(+2#,(+/;*+)-(.)*#+
&#+ (C(,!,%0-+ '(&+ ,)-".#")+ ,#!*#-')+ ,)-+ (&&)+ !-+ :(.C!%,%)+ :#."%,!<
&#.+)+(*:(,%#&+#&+,)-".#"#-"(VV>+8*")*+#,)-"(,%/%(-")*+'#-+&!3#.+#+&#+
#:&%,#,%0-+'(+&#+"().9#+&&#/#'#+P2(,2)+'(&+:.9-,%:(Q+)+P2(,2)+'(+&#+ MUTABILIDAD
DE LOS
#'/%-%*".#,%0-QV]>
I#/$%X-+(*"#+,%.,!-*"#-,%#+3(-(.#+!-+'(.(,2)+#+&#+%-'(/-%M#,%0-+%-"(<
3.#&+O'#e)+(/(.3(-"(+4+&!,.)+,(*#-"(O+(-+5#=).+'(&+,),)-".#"#-"(VW@+
B!(+(-+-#'#+=(+#"(-!#'#*+&#+(A%*"(-,%#+4+(A%3%$%&%'#'+'(+*!*+)$&%3#,%)-(*+
,)-".#,"!#&(*]Y>+?(.)+"#/$%X-+(-+(*"(+,#*)@+*(3`-+&#+9-')&(+'(&+,)-".#")@+
(&+.(*"#$&(,%/%(-")+'(&+(B!%&%$.%)+,)-".#,"!#&+:!('(+*(.+'(+)".#+-#"!.#<
&(M#@+:).+(C(/:&)+/('%#-"(+%-,.(/(-")*+(-+&#*+"#.%5#*@+*%+*(+".#"#+'(+&#+
:.(*"#,%0-+'(+!-+*(.=%,%)+:`$&%,)@+)+'(+&)*+:(#C(*+(-+!-#+,)-,(*%0-+'(+
)$.#+:`$&%,#]N>
CONTRATOS DE LA
ADMINISTRACIÓN
EN EL
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
I X . A D M I S I Ó N D E L A M U TA B I L I D A D D E L O S
C O N T R AT O S D E L A A D M I N I S T R A C I Ó N P O R E L
T R I B U N A L D E C U E N TA S D E L A R E P Ú B L I C A
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*%-+'!'#+/;*+-)").%)+(-+B!(+(&+".%$!-#&+,!(*"%)-0@+(&+U+'(+'%,%(/$.(+'(+
TYYU@+&#+&(3%"%/%'#'+'(+&#*+/)'%5%,#,%)-(*+#,).'#'#*+:).+&#*+:#."(*+#+!-#+
,)-,(*%0-+'(+!*)+'(+!-+2)"(&+/!-%,%:#&>
K[!10+%#(,)+/>#'$@!M"G0$2$*C1!(0!-+%!$+1&'#&+%iO@(>=@!$*&@D!;;@!_\J__^!+0"55"@!>=@!$*&@D!;;@!KHJ`L@!U*!%0!
#$&2#'#!0G0'$*01(+!E#$2-&#(0%!$+1&'#$&2#-0%D!-#!4*;C&0%*%!%0!'0?*'V#!;+'!-+%!;'*1$*;*+%!(0-!$26;-*6*01&+!(0!
-+%!$+1&'#&+%@
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#!-#!(+$&'*1#!,!G2'*%;'2(01$*#!1#$*+1#-0%D!7b#%0!-#!21)1*60!$*&#(#!01!-#!1+&#!%*?2*01&0@!"1!$2#1&+!#!-#!
0.&'#1G0'#!6)%!'0$*01&0D!$#=0!$*&#'!#!5;).02D!:@!9&."$(/,1"2"#$&%$"GBD!&+6+!A@!>=@!$*&@D!;;@!KI`JK\LD!,!
1'(&)07)1'+'( $(%64!=&%"$F(, (9&."$(/,1"2"#$&%$"GD!&+6+!/@!>=@!$*&@D!;;@!KK`JK`L@
K\!2)B)!092! &)2"@! =&%$%,.BE! &+6+! //@! >=@! $*&@D! ;)''#E+%! \A[D! ;@! \H^! &'*+'+"( 7"5)!'@! >=@! $*&@D! ;@!
ATTJAT[D! E+'62-#1(+! %#-70(#(0%^! 1'&.-)$$"@! >=@! $*&@D! ;@! TTI^! +0"55"@! >=@! $*&@D! ;@! `T@! "-! N'*=21#-!
(0! -+! ]+1&01$*+%+! 5(6*1*%&'#&*7+! '0$*=0! -#! &0+'V#! (0-! G%5$'1( ?&"25"?"#D! ;0'+! -#! -*6*&#! #! -#%! 60(*(#%!
#(6*1*%&'#&*7#%! *6;'07*%*=-0%!,! ) 2 &%6 #E(.73 $"!%#W!%01&01$*#%!XY! `LK!(0-! A\! (0! +$&2='0! (0! AHHK! ,!
XY!`JH`!(0-!I!(0!E0='0'+!(0!AHH`^!%01&01$*#!XY![D!(0-!;'*60'+!(0!E0='0'+!(0!TLLAD!&+(#%!01!/2'%&".(, (
9 & 5:.(/,1"2"#$&%$"!.D!&+6+!gD!XY!AHLD!Z+1&07*(0+D!TLL[@
K_!&'*+'+"(7"5)!'@!>=@!$*&@D!;@!ATT^!1'&.-)$$"@!>=@!$*&@D!;@!TTI^!+0"55"@!>=@!$*&@D!;@!`L@
KK!&'*+'+"(7"5)!'@!>=@!$*&@D!;@!ATT^!+0"55"@!>=@!$*&@D!;@!`L@
K`!2)B)!092!&)2"@!=&%$%,.iD!&+6+!//@!>=@!$*&@D!;)''#E+%!\AT!,!\A[D!;;@!\_J_AD!,!;)''#E+%!\I`!,!\IHD!;;@!
H[JH\^!&'*+'+"(7"5)!'@!>=@!$*&@D!;;@!ATTJATI!,!AT`JATH^!+0"55"@!>=@!$*&@D!;;@!KHJ`I^!1'&.-)$$"@!>=@!
$*&@D!;@!TTI@!
KH!2)B)!092!&)2"@!=&%$%,.iD!&+6+!//@!>=@!$*&@D!;)''#E+%!\A[D!;@!_L^!&'*+'+"(7"5)!'@!>=@!$*&@D!;@!AT[^!
1'&.-)$$"@!>=@!$*&@D!;@!TTI@
`L!U*1!06=#'?+D!B07'0'+!c+$#?0!P+=@!$*&@D!;@!ATIQ!#(6*&0!R20D!01!$*0'&+%!$#%+%D!0-!40$4+!(0!-#!#(6*1*%&'#$*C1!
;20(0!G2%&*E*$#'!0-!*1$26;-*6*01&+!(0-!$+1&'#&*%&#@
`A!2)B)!092!&)2"@!=&%$%,.BE!&+6+!//@!>=@!$*&@D!;)''#E+%!\A[D!;;@!_LJ_A^!1'&.-)$$"@!M:010?+$*#$*C1!(0!-#%!
&#'*E#%iO@(>=@!$*&@
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
J U A N PA B L O C A J A R V I L L E P E L U F F O
8-+=%."!'+'(+!-#+*)&%,%"!'+'(+.(,)-*%'(.#,%0-+5)./!&#'#+:).+&#+#!").%<
'#'+/!-%,%:#&@+,)-+#3.(3#,%0-+'(+-!(=)*+#-"(,('(-"(*@+(&+NU+'(+C!&%)+
K[[
'(+TYYK+(&+I.%$!-#&+'(+G!(-"#*+=)&=%0+#+,)-*%'(.#.+&#*+/)'%5%,#,%)-(*+
,)-".#,"!#&(*+:.):!(*"#*+4+.(=%*0+#B!(&&#+.(*)&!,%0-+'(&+U+'(+'%,%(/$.(+
'(+TYYU+,)-+5!-'#/(-")*+".#*,(-'(-"(*>+
1(*:!X*+ '(+ .#"%5%,#.+ B!(+ #+ *!+ ,.%"(.%)+ P(&+ :.%-,%:%)+ 3(-(.#&+ .(*:(,")+ #+
&#+/)'%5%,#,%0-+'(+&)*+,)-".#")*+#'/%-%*".#"%=)*+&)+,)-*"%"!4(+&#+%-/!<
"#$%&%'#'+'(+&)*+/%*/)*@+(-+/X.%")+#+&)+:.(=%*")+(-+'%=(.*#*+-)./#*+'(+
-!(*".)+'(.(,2)+:)*%"%=)+:.%=#')+EJ."9,!&)+NTWN+GGFQ+E,)-*%'(.#-')+
UF@+.(%"(.0+B!(+(*(+:.%-,%:%)+P#'/%"(+(A,(:,%)-(*@+,)-+&#*+,#.#,"(.9*"%,#*+
(-!-,%#'#*+:).+&#+'),".%-#+:!$&%,%*"#@+(-".(+&#*+B!(+*(+!$%,#+&#+"().9#+
'(+&#+%/:.(=%*%0-@+(&+^2(,2)+'(&+:.9-,%:(_+4+&#*+*!C(,%)-(*+%/:.(=%*"#*@+
-)+)$*"#-"(+,#.(,(.+-!(*".)+'(.(,2)+#'/%-%*".#"%=)+'(+-)./#*+(A:.(*#*+
B!(+.(3!&(-+'%,2#*+(A,(:,%)-(*Q+E,)-*%'(.#-')+KF>+
?(.)+'(*:!X*+#3.(30]TR+
abc+B!(+,)..(*:)-'(+#+&#+=)&!-"#'+'(+&#*+:#."(*+4+5!-'#/(-"#&/(-"(+
#+&#+%-%,%#"%=#+'(&+,),)-".#"#-"(+%-=),#.+&#+(A%*"(-,%#+'(+2(,2)*@+B!(+
#5(,"#-+&#+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+"(-%'#+(-+,!(-"#+#&+,(&($.#.+
(&+,)-".#")@+"&'*<!*&/,$&"7,1%*1%,&"+$'"&/%"&'"+$*$)("+"(.*(!,$),($(*N,&"+$
/"$%&'"(G+$)K<!%1,$A-"$*)-&'"&$*$-&$&-".,$"A-%!%<(%,$"1,&E:%1,$"&'("$"!!*++
E,)-*%'(.#-')+ZFg+
J U A N PA B L O C A J A R V I L L E P E L U F F O
abc+B!(+(-+(*(+*(-"%')+&#+/)'(.-#+'),".%-#+'(&+'(.(,2)+:`$&%,)+(*"#<
$&(,(+B!(+P1-*&/,$!*+$1,&/%1%,&"+$)*1'*/*+$&,$1-<("&$!*+$*!'"(&*'%.*+$"&$
A-"$+"$)(,/-1"$!*$"="1-1%E&$/"!$1,&'(*',$?$+-+$)(".%+%,&"+$+"$',(&*&$%&"C%1*1"+$
),($*!7-&*$1*-+*O$+"$%:),&"$"!$(")!*&'",$/"$!*+$:%+:*+$)*(*$,<'"&"($"!$,<=";
'%.,$/"$+*'%+C*11%E&$/"!$<%"&$1,:K&$*!$A-"$*)-&'*(,&$!*+$)*('"+$*!$1,&'(*'*(Q+
E,)-*%'(.#-')+[Fg+
abc+B!(+(&+I.%$!-#&+(-+*!+.(*)&!,%0-+'(&+U>NT>YU+(A:.(*0+B!(+(-".(+&#*+
,#!*#*+B!(+:)'.9#-+'#.+&!3#.+#+!-#+.(=%*%0-+'(&+,)-".#")+*(+!$%,#+&#+,%"#<
'#+"().9#+'(+%/:.(=%*%0-@+:#.#+,!4#+#:&%,#,%0-+'($(-+,)-5%3!.#.*(+'("(.<
/%-#')*+*!:!(*")*@+(-".(+&)*+,!#&(*+#&3!-)*+.(B!%(.(-+!-#+(=#&!#,%0-+
*!$C("%=#+'(+&#*+:#."(*+4+)".)*+"%(-(-+,#.;,"(.+)$C("%=)+,)/)+&)+(*+(&+,#*)+
'(+&#+".#-*%").%('#'+'(+&#+*%"!#,%0->+S)+)$*"#-"(+(&+,#.;,"(.+)$C("%=)+'(+
(*"(+*!:!(*")+,)/)+$%(-+*(+2#+*)*"(-%')+P,%(.")+(*+B!(+(-+/!,2)*+,#*)*+
&#+*%"!#,%0-+%/:.(=%*"#+*(+,)-*)&%'#+'(5%-%"%=#/(-"(+4+'(*#:#.(,(+")'#+
:)*%$%&%'#'+'(+.(").-)+#+&#*+,)-'%,%)-(*+:.%/%"%=#*+(A%*"(-"(*+#&+/)/(-<
")+'(+5)./#&%M#.*(+&#+,)-=(-,%0->+8-+(*"#+2%:0"(*%*@+!*$+,!-1%E&$_A-"$"&$
!*$)(I1'%1*$+"$2*$/*/,$+,!*:"&'"$"&$"!$1*+,$/"$!*+$1,&1"+%,&"+O$1,&'(*',$A-"$
),($+-$!*(7*$/-(*1%E&$"+$*C"1'*/,$:I+$)(,C-&/*:"&'"$),($!*$)"(:*&"&1%*$
/"!$/"+"A-%!%<(%,$"1,&E:%1,i$+"$!,7(*$),($:"/%,$/"$-&*$:,/%C%1*1%E&$/"$!*+$
1!I-+-!*+$/"!$1,&'(*',Q+E,)-*%'(.#-')+VF>
`T!N+(#%!-#%!$2'%*7#%!(0!-#%!$*&#%!%+1!6V#%@
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
[[
K[V
G)-,&!40+*)$.(+(*"(+:!-")+&)+*%3!%(-"(R+P8-+,)-*(,!(-,%#+"+$)(%.*'%.,$/"$
!*$.,!-&'*/$/"$!*+$)*('"+$%&%1%*($&"7,1%*1%,&"+$*&'"$-&$*1',$,$2"12,$)"('-(<*;
/,($7"&"(*/,($/"$!*$*!'"(*1%E&$A-"$+"$)(,/-1"$"&$!*$"1-*1%E&$"1,&E:%1,;C%&*&;
1%"(*$/"!$1,&'(*',O+#,.('%"#'#+&#+,!#&+(&+G!(.:)+#-#&%M#.;+&#+&(3%"%/%'#'+'(+
MUTABILIDAD
&#*+/)'%5%,#,%)-(*Q+E,)-*%'(.#-')+NKF>
DE LOS
8-+,!#-")+#&+:.%-,%:%)+'(+%3!#&'#'+'(+&)*+)5(.(-"(*+(-+&#+&%,%"#,%0-@+*)$.(+ CONTRATOS DE LA
(&+,!#&+"#-")+2%-,#:%X+2#$9#+2(,2)+(-+*!+.(*)&!,%0-+'(&+U+'(+'%,%(/$.(+ ADMINISTRACIÓN
EN EL
'(+TYYU@+'%C)+#2).#+(&+".%$!-#&R+
!4+ &(C)*+ (*";-+ (*")*+ ,)-,(:")*+ '(&+ ".%$!-#&+ '(+ &#+ .93%'#+ #:&%,#,%0-+
'(+ &#+ %-/!"#$%&%'#'+ '(+ &)*+ ,)-".#")*@+ ,)-"(-%'#+ (-+ *!*+ .(*)&!,%)-(*+
'(&+U+'(+'%,%(/$.(+'(+TYYU+4+'(&+TY+'(+/#4)+'(+TYYK>+8*+,&#.)+B!(+
(&+.(,)-),%/%(-")+'(+&#+&(3%"%/%'#'+'(+&#+-(3),%#,%0-+(-".(+&#*+:#.<
"(*+:#.#+/)'%5%,#.+(&+,)-"(-%')+'(&+,)-".#")@+,!#-')+*(+2#+:.)'!,%')+
!-#+#&"(.#,%0-+(-+*!+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+)+,!#-')+*!*+(*<
"%:!&#,%)-(*+ 2#-+ '(=(-%')+ %-(5%,#,(*+ :#.#+ &#+ *#"%*5#,,%0-+ '(&+ %-"(.X*+
:`$&%,)@+!-%')+(*")+#+*!+(A:&9,%"#+#,(:"#,%0-+'(+&#*+P"().9#*Q+*)$.(+(&+
/#-"(-%/%(-")+'(+&#+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+'(&+,)-".#")+#&<
"(.#'#+:).+,%.,!-*"#-,%#*+*!:(.=%-%(-"(*@+2#-+&&(=#')+#+%'(-"%5%,#.+&#+
:)*%,%0-+'(&+".%$!-#&+,)-+&#+*)*"(-%'#+:).+&#+'),".%-#+#'/%-%*".#"%=%*"#+
-#,%)-#&+4+,)/:#.#'#+*)$.(+(&+"(/#>+I)')+(&&)+),!..(+*%-+:(.C!%,%)+'(+
*!+.(%"(.#'#+#5%./#,%0-+'(&+P:.%-,%:%)+'(+%-/!"#$%&%'#'+'(+&)*+,)-".#<
")*+'(+&#+#'/%-%*".#,%0-Q+B!(+5!-'#+(-+P-)./#*+'(+-!(*".)+'(.(,2)+
:)*%"%=)+:.%=#')Q>
X. CONCLUSIÓN
J+*(/(C#-M#+'(+&#+*)&!,%0-+=%3(-"(+(-+(&+1(.(,2)+,)/:#.#')@+"#/$%X-+
(-+ (&+ 1(.(,2)+ :)*%"%=)+ !.!3!#4)+ '($(+ #'/%"%.*(@+ #!-+ (-+ #!*(-,%#+ '(+
-)./#+(A:.(*#@+&#+/!"#$%&%'#'+'(+&)*+,)-".#")*+,(&($.#')*+:).+&#+#'/%<
-%*".#,%0-+,!#-')+*!*+(*"%:!&#,%)-(*+)$*"(-+#&+'($%')+,!/:&%/%(-")+'(+
*!*+,)/("%')*+,)-5)./(+,)-+(&+1(.(,2)+4+&)*+:.%-,%:%)*+'(+$!(-#+#'/%<
-%*".#,%0-+4+(-+=%."!'+'(+,%.,!-*"#-,%#*+*!:(.=%-%(-"(*+#+&#+,(&($.#,%0-+
'(&+,)-".#")+)@+(-+*!+,#*)@+#+&#+:.(*(-"#,%0-+'(+&#*+)5(."#*+(-+(&+:.),('%<
/%(-")+,)/:("%"%=)+:.(=%)@+,)-+&#+5%-#&%'#'+'(+:)*%$%&%"#.+&#+*#"%*5#,,%0-+
'(&+%-"(.X*+:`$&%,)+:(.*(3!%')+#&+,)-".#"#.>
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420
DERECHO
URUGUAYO
MUTABILITY OF
MANAGEMENT
CONTRACTS IN
URUGUAYAN LAW
J U A N PA B L O C A J A R V I L L E P E L U F F O
S)+ .(*!&"#+ #5(,"#')+ (-+ /)')+ #&3!-)+ (&+ :.%-,%:%)+ '(+ %3!#&'#'@+ *%+ *(+
/)'%5%,#+(&+,)-".#")+(-+5!-,%0-+'(+&)*+2(,2)*+4+5!-'#/(-")*+#,.(<
'%"#')*+(-+(*"(+,#*)+/('%#-"(+&#+-!(=#+'),!/(-"#,%0-+#:)."#'#>+8-+
(5(,")@+(-+-#'#+*(+:(.C!'%,#-+)".)*+(=(-"!#&(*+:.):)-(-"(*@+4#+B!(+'(+
2#$(.+(A%*"%')+4+'(+2#$(.+3#-#')+&#+&%,%"#,%0-@+"#/$%X-+2*<(B*&$'"&%;
/,$!*$),+%<%!%/*/$*&'"$%7-*!"+$1%(1-&+'*&1%*+$/"$"&'*<!*($&"7,1%*1%,&"+$?$/"$
*1,(/*($:,/%C%1*1%,&"+$1,:,$!,$"C"1'-E$"!$*/=-/%1*'*(%,$/"$"+'*$!%1%'*1%E&$
E,)-*%'(.#-')+NUF>
K[]
?(.)+'(+-%-3!-#+/#-(.#+&#+#'/%*%0-+'(+"#&+*)&!,%0-+,)/)+!-+:.%-,%<
:%)+ :.):%)+ '(+ &#+ ,)-".#"#,%0-+ '(+ &#+ #'/%-%*".#,%0-+ :!('(+ C!*"%5%,#.+ &#+
/)'%5%,#,%0-+'(+!-+,)-".#")+,!4#+(,!#,%0-+(,)-0/%,)<5%-#-,%(.#+2#4#+
*%')+%-=%#$&(+*<+%&%'%,O+,)/)+,)-*(,!(-,%#+'(+(..).(*+'(&+,),)-".#"#-"(+
(-+B!(+2#4#+%-,!..%')+:).+*!+:.):%#+,!&:#+)@+,)/)+*!(&(+),!..%.@+'(+&#+
:.(*(-"#,%0-+'(+)5(."#*+5)./!&#'#*+'(+/#&#+5(+,)-+(&+`-%,)+:.):0*%")+
'(+".%!-5#.+(-+(&+:.),('%/%(-")+,)/:("%"%=)+4+,)-+&#+:.(/('%"#'#+%-<
"(-,%0-+'(+:.("(-'(.+*!+/)'%5%,#,%0-+5#=).#$&(+'!.#-"(+&#+(C(,!,%0-+'(+
,)-".#")>+8-+"#&+,#*)@+*)&)+*(.;+&9,%")+#+&#+#'/%-%*".#,%0-+(A%3%.+(&+,!/:&%<
/%(-")+(-+&)*+"X./%-)*+:#,"#')*+4+#:&%,#.+")'#*+&#*+*#-,%)-(*+4+.(,&#/#.+
&#+.(:#.#,%0-+'(+")')*+&)*+'#e)*+4+:(.C!%,%)*+,#!*#')*@+*%+(&+,),)-".#"#-<
"(+-)+,!/:&%(.#+,)-+*!*+)$&%3#,%)-(*+"#&+,)/)+5!(.)-+#*!/%'#*>+
J U A N PA B L O C A J A R V I L L E P E L U F F O
\%+(-+"#&(*+):)."!-%'#'(*+&#+#'/%-%*".#,%0-+#'/%"%(.#+&#+/)'%5%,#,%0-+
'(&+,)-".#")@+*!+'(,%*%0-+*(.9#+%&(39"%/#+:).B!(+&#*+,%.,!-*"#-,%#*+'(+2(<
,2)+ )+ &)*+ /)"%=)*+ '(+ *!+ #,"!#,%0-+ -)+ ,)-'!,%.9#-+ .#M)-#$&(/(-"(+ #+
(*#+*)&!,%0-+(+%-,!..%.9#+(-+'(*=%#,%0-+'(+:)'(.+:).+!"%&%M#.+*!+:)"(*"#'+
/)'%5%,#").%#+,)-+!-#+5%-#&%'#'+B!(+-)+(*+&#+'($%'#>+
Derecho PUCP, N° 66, 2011 / ISSN 0251-3420