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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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    關于“修訂〈政府采購法〉”建議的答復

    2017年10月09日 10:54 來源:財政部打印

       《政府采購法》自2003年1月1日實施以來,對推動我國政府采購制度建立及采購事業的發展發揮了重要作用,政府采購規模和政府采購支出占財政支出的比重有了較大的提高。但正如你們所提出的,隨著改革的深入,現行《政府采購法》還存在一些不合理、不完善之處,難以滿足實際采購操作的需要。我們基本同意你們對現行政府采購法制建設存在問題的分析,贊同關于修訂《政府采購法》的建議。 

      一、關于政府采購規模和范圍 

      《政府采購法》第二條第二款規定“本法所稱政府采購,是指各級國家機關、事業單位和團體組織,使用財政性資金采購依法制定的集中采購目錄以內的或者采購限額標準以上的貨物、工程和服務的行為”,分別從采購主體、資金來源、采購標的等三個方面對政府采購的范圍進行了界定,在一定程度上確實存在范圍偏窄的問題。 

      采購主體方面,國有企業是否納入政府采購范圍在《政府采購法》立法之初就有爭議,當時主要考慮是國有企業作為市場主體應按照市場規律自主經營。目前在我國加入WTO《政府采購協定》(GPA)談判中,國有企業是否開放、如何開放、開放范圍也是談判的焦點之一。GPA參加方在國有企業方面的出價主要看是否受政府控制或影響,但國外的國有企業無論從性質、管理方式還是數量上都與我國有很大區別,如美國聯邦政府所屬國有企業不足30家,都是為特定公共管理或服務目的而設立,管理上類似政府機構,因此基本都納入了政府采購范圍。 

      資金來源方面,目前對“財政性資金”并沒有準確的定義,正在制定中的《政府采購法實施條例(草案)》中擬通過納入“預算管理”來界定財政性資金。國外立法中,如《政府采購協定》(GPA)、《聯合國公共采購示范法》、《歐盟政府采購指令》等,政府采購的適用范圍一般不涉及采購實體的資金來源,而主要是通過對采購實體范圍、是否出于政府目的等進行限定。 

      采購標的方面,《政府采購法》包括了貨物、工程和服務三類,但同時規定“政府采購工程進行招標投標的,適用招標投標法”,兩法的實施條例擬對此做進一步銜接。由于絕大部分政府采購工程適用《招標投標法》,導致政府采購統計規模偏小。隨著中國加入GPA談判工作的深入,必然涉及政府采購工程的法律適用問題,需要根據中國出價和法律調整談判情況,相應修訂《政府采購法》和《招標投標法》。 

      二、關于政府采購預算 

      政府采購法第三十三條規定“負有編制部門預算職責的部門在編制下一財政年度部門預算時,應當將該財政年度政府采購的項目及資金預算列出,報本級財政部門匯總。部門預算的審批,按預算管理權限和程序進行”。政府采購預算是部門預算中的組成部分,目前全國人大正在修訂《預算法》,國務院法制辦也將相應修訂《預算法實施條例》,進一步加強對預算的管理和監督,規范政府支出。《政府采購法實施條例(草案)》則擬強化采購計劃的編制,要求采購人根據集中采購目錄、采購限額標準和已批復的部門預算編制政府采購實施計劃,以利于集中批量采購和采購活動的監管,避免無預算、超預算、臨時性或隨意性采購。 

      三、關于政府采購政策功能和立法目的 

      《政府采購法》起草時我國還處于社會主義市場經濟體制初步探索時期,計劃經濟痕跡明顯,立法主要借鑒的是1994年《聯合國貨物工程服務采購示范法》,強調公平競爭和對外開放,把節約財政資金和預防腐敗目標放在了突出位置,弱化了其他經濟社會目標。從國外政府采購制度兩百多年的歷史經驗看,各國多是圍繞“物有所值”的價值目標,在通過立法確立完整明確的公平交易規則基礎上,強化政府采購政策在經濟與社會目標上的調控能力。因此,在政府采購中強調經濟社會目標是國際通行做法,也是政府采購不同于一般市場行為的特點之一,如何發揮政策功能的作用,平衡各項政策目標,需要在修訂《政府采購法》時予以考慮。 

      四、關于政府購買服務 

      《政府采購法》第二條第七款規定“本法所稱服務,是指除貨物和工程以外的其他政府采購對象”,是一種兜底式定義,并沒有限定是政府自身運作需要的服務。采購人使用財政性資金采購的所有服務項目,包括公共服務項目,都應當適用《政府采購法》。為了進一步明確政府采購服務的范圍,避免認為政府采購標的中不包括公共服務的誤解,《政府采購法實施條例(草案)》中擬明確規定《政府采購法》所稱服務包括政府向社會公眾提供的公共服務。 

      為進一步推進政府購買服務工作,我部先后下發了《關于政府購買服務有關預算管理問題的通知》(財預〔2014〕13號)、《關于做好2014年中央部門政府購買服務的通知》(財綜〔2014〕18號)、《關于推進和完善服務項目政府采購有關問題的通知》(財庫〔2014〕37號)等,對政府購買服務的預算管理、品目分類、需求管理、采購程序、合同要求、執行監控、績效評價、監督檢查、履約驗收管理做出了明確規定。在財庫〔2014〕37號文件中,將服務項目按照服務受益對象明確分為三類:第一類為保障政府部門自身正常運轉需要向社會購買的服務;第二類為政府部門為履行宏觀調控、市場監管等職能需要向社會購買的服務;第三類為增加國民福利,受益對象待定,政府向社會公眾提供的公共服務。為培育政府購買服務供給市場,促進作為承接主體的社會組織的發展,財庫〔2014〕37號文件還規定了將大額項目拆分采購、新增項目向其他供應商采購、簽訂長期政府采購合同等具體措施。 

      五、關于政府采購信息公開 

      《政府采購法》第三條確立了政府采購應當公開透明的原則。我部在相關部門規章中也對政府采購信息公告的范圍、方式、內容,信息公告管理,指定媒體管理等方面做了具體規定。為進一步提高透明度,加強社會監督,《政府采購法實施條例(草案)》擬進一步細化和加大信息公開力度,如要求政府采購項目信息在指定的媒體上發布;在采購文件中列明采購項目預算金額;公開招標數額標準以上采用單一來源采購方式的項目應當事先公示;公告中標、成交結果,包括招標文件,主要中標或者成交標的的名稱、規格型號、數量、單價、服務要求,評審專家名單等關鍵信息;公開采購合同;公開投訴處理結果等。 

      六、關于政府采購支持中小企業發展 

      中小企業是促進國民經濟社會發展的重要力量,促進中小企業發展是《政府采購法》第九條規定的政府采購政策目標之一。為貫徹落實《政府采購法》的規定,促進符合國家經濟和社會發展政策目標,且產品、服務、信譽較好的中小企業發展,我部于2011年印發了《關于開展政府采購信用擔保試點工作的通知》(財庫〔2011〕124號)和《政府采購促進中小企業發展暫行辦法》(財庫〔2011〕181號)等規范性文件,采取預留采購份額、降低門檻、價格扣除、鼓勵聯合體投標和分包、信用擔保等多項政策措施,鼓勵支持中小企業參加政府采購。各級財政部門也先后出臺了關于支持中小企業參與政府采購的相關制度。 

      七、關于政府采購監管機制 

      《政府采購法》對政府采購活動規定了不同主體、不同層面的監督機制,建立了質疑和投訴的救濟機制。對采購人、采購代理機構、供應商等采購當事人及相關人員的法律責任分別做出了明確規定,我部先后制定了有關供應商投訴處理、評審專家管理、集中采購機構監督考核管理等規章和規范性文件。為進一步加強監管,《政府采購法實施條例(草案)》擬在強化采購程序監督的基礎上,完善采購需求管理、履約驗收、法律責任等相關規定,通過更加透明的信息公開擴大社會監督,對供應商、采購代理機構的不良行為進行記錄,并納入統一的信用信息平臺。特別是在法律責任方面,《政府采購法實施條例(草案)》針對各類違法主體,補充了擅自改變采購方式或采購程序、串通操縱采購、違法評審、不依法確定中標或者成交供應商、不按照采購文件簽訂合同、未按照規定組織履約驗收等違法行為以及監管部門的法律責任。 

      八、關于下一步工作 

      (1)適時建議修訂《政府采購法》。《政府采購法》實施十年來,對推動我國政府采購制度建立及采購事業的發展發揮了重要作用,但隨著改革的深入,除前述問題外,采購法在體制機制、監管方式等方面也存在一定的局限性和不足,隨著中國加入GPA談判工作的深入也需要進行法律調整,我部將加強研究,考慮你們所提建議,向全國人大建議適時修訂《政府采購法》,制定包括需求管理、程序管理、合同與履約管理、特許經營權管理與績效審計評價等內容完整、可操作性強的政府采購法,擴大政府采購的適用范圍,確立政府采購公平交易核心機制,發揮政府采購政策功能,強化監督,維護統一開放、競爭有序的政府采購市場,使政府采購制度真正成為政府重要的公共管理制度和部門支出管理制度。 

      (2)積極推動《政府采購法實施條例》早日出臺。《政府采購法實施條例(草案)》將進一步細化和完善政府采購制度規定,強化政府采購政策功能,提高政府采購透明度,規范政府采購活動,有利于在一定程度上解決政府采購活動中存在的問題。現階段,我們將配合國務院法制辦積極做好有關立法工作,爭取早日出臺。

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