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    財政部唯一指定政府采購信息網絡發布媒體 國家級政府采購專業網站

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    指導案例4號:XX物業消防運行服務項目舉報案

    2017年11月20日 10:27 來源:中國政府采購網打印

    關鍵詞 資格條件/認證證書/特定金額合同業績

      案例要點

    若有關資格許可或認證證書同時滿足下述要求,則不屬于政府采購法實施條例第二十條規定“以不合理的條件對供應商實行差別待遇或者歧視待遇”的情形:1.不在國務院取消的行政審批項目目錄內;2.申請條件中沒有對企業的注冊資本、資產總額、營業收入、從業人員、利潤、納稅額等規模條件作出限制;3.與項目的特殊要求存在實質上的關聯性;4.滿足該資格許可或認證證書要求的供應商數量具有市場競爭性。

    由于合同金額與營業收入具有直接的關聯性,招標文件中將供應商具有特定金額的合同業績作為資格條件,實質上屬于以營業收入排除或限制中小企業進入政府采購市場,構成政府采購法和政府采購法實施條例所規定的“以不合理的條件對供應商實行差別待遇或者歧視待遇”的情形。

    相關法條

    《中華人民共和國政府采購法》第二十二條、《中華人民共和國政府采購法實施條例》第二十條、《政府采購促進中小企業發展暫行辦法》(財庫〔2011181號)第三條

    基本案情

    采購人A委托代理機構Z就該單位“XX物業消防運行服務項目”(以下稱本項目)進行公開招標,項目預算為325萬元。2016927日,代理機構Z發布招標公告,后組織了開標、評標工作,共有9家供應商參與投標。經過評審,評標委員會推薦B公司為中標候選人。采購人確認后,20161019日,代理機構Z發布中標公告。

    20161014,財政部收到關于本項目的舉報信,來信反映:1.本項目招標公告的“供應商資質要求”規定了供應商須具有質量管理體系認證證書、環境管理體系認證證書、職業健康安全管理體系認證證書,上述證書不是國家職能部門頒發的行政許可證,以其作為資格條件屬于以不合理的條件對供應商實行差別待遇或歧視待遇的情形。2.本項目招標公告的“供應商資質要求”規定了供應商“自2013年至2015年須具有1個(含)以上合同金額在100萬元(含)以上物業管理服務”業績的內容,屬于以不合理的條件對供應商實行差別待遇或歧視待遇的情形。

    財政部依法受理本案,審查中發現,本項目招標文件的“供應商資質要求”項下確實規定了舉報人所反映的內容。對此,代理機構Z稱,1.招標公告要求的三個認證體系證書符合項目本身具有的技術管理特點和實際需要。2.本項目業績要求是從項目專業特點和實際需要出發,對供應商是否具有履約基本能力的考核,且要求的業績的合同金額遠低于本項目預算金額。  

    處理結果

    財政部作出監督檢查處理決定:根據《中華人民共和國政府采購法》第二十二條第二款的規定,舉報事項1缺乏事實依據。根據《中華人民共和國政府采購法》第二十二條第二款和《政府采購促進中小企業發展暫行辦法》(財庫[2011]181號)第三條的規定,舉報事項2成立。

    根據《中華人民共和國政府采購法實施條例》第七十一條第(二)項的規定,決定中標無效,責令采購人A重新開展采購活動。

    根據《中華人民共和國政府采購法》第七十一條第(三)項的規定,責令采購人A和代理機構Z就以不合理的條件對供應商實行差別待遇或者歧視待遇的行為限期改正,并對采購人A和代理機構Z作出警告的行政處罰。

    處理理由

    財政部認為:根據《中華人民共和國政府采購法》第二十二條第二款的規定,采購人可以根據采購項目的特殊要求,規定供應商的特定條件,但不得以不合理的條件對供應商實行差別待遇或者歧視待遇。同時,《中華人民共和國政府采購法實施條例》第二十條規定:“采購人或者采購代理機構有下列情形之一的,屬于以不合理的條件對供應商實行差別待遇或者歧視待遇:(一)就同一采購項目向供應商提供有差別的項目信息;(二)設定的資格、技術、商務條件與采購項目的具體特點和實際需要不相適應或者與合同履行無關;(三)采購需求中的技術、服務等要求指向特定供應商、特定產品;(四)以特定行政區域或者特定行業的業績、獎項作為加分條件或者中標、成交條件;(五)對供應商采取不同的資格審查或者評審標準;(六)限定或者指定特定的專利、商標、品牌或者供應商;(七)非法限定供應商的所有制形式、組織形式或者所在地;(八)以其他不合理條件限制或者排斥潛在供應商。”

    本案中,關于舉報事項1,所涉及的質量管理體系認證證書、環境管理體系認證證書、職業健康安全管理體系認證證書不在國務院取消的資格許可和認定事項目錄內,且其申請條件中也沒有對企業的注冊資金、營業收入等業績規模作出限制。同時,本項目服務內容為工作區相關的設施場地維護及消防安防物業管理等,招標文件要求的三個體系認證證書與本項目本身具有的技術管理特點和實際需要存在關聯性。另外,參加投標的9家供應商中有6家具備這三個證書。因此,以上述三個認證證書作為資格條件不屬于以不合理的條件對供應商實行差別待遇或歧視待遇的情形。

    關于舉報事項2一是采購人和代理機構有多種方式可以實現對供應商履約能力的考核,將特定金額的合同業績設定成資格條件并非是唯一不可替代的方式。二是雖然100萬元的要求低于本項目的預算金額,但該合同業績金額的限定與項目本身的預算金額并無直接關聯性,代理機構提出的該限定低于項目預算金額的說法無法證明100萬元合同業績要求的合理性。另外,《政府采購促進中小企業發展暫行辦法》(財庫〔2011181號)第三條規定:“任何單位和個人不得阻撓和限制中小企業自由進入本地區和本行業的政府采購市場,政府采購活動不得以注冊資本金、資產總額、營業收入、從業人員、利潤、納稅額等供應商的規模條件對中小企業實行差別待遇或者歧視待遇。”雖然合同金額的限定不是直接對企業規模的限定,但由于合同金額與營業收入直接相關,本項目招標公告中有關供應商特定金額合同業績條件的設置,實質是對中小企業營業收入的限制,構成對中小企業實行差別待遇或者歧視待遇,違反了《中華人民共和國政府采購法》第二十二條第二款和《中華人民共和國政府采購法實施條例》第二十條第(二)項的規定。

    (此文未經授權,任何媒體和單位不得隨意轉載或復制,否則,將追究法律責任。)

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