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    婁洪:進一步做好中央單位集中采購工作

    2016年06月06日 12:51 來源:中國政府采購網打印

      在2016年度中央國家機關政府集中采購

    工作會議上的講話(節選)

    財政部國庫司巡視員 婁洪

    (2016年6月3日)

        一、中央集中采購工作取得積極成效

      “十二五”期間,特別是2013年全國政府采購工作會議以來,在各中央部門的大力支持下,國采中心等集采機構按照“從程序導向向結果導向轉型”的要求,不斷加強自身建設,依法規范采購活動,集中采購的質量和效益進一步提升。
      一是集中采購規范化程度顯著提高。各中央集采機構注重完善內部制度,健全相互制約的工作機制,加強內部控制,通過組織開展定期培訓、業務交流等方式,加強人員隊伍建設,不斷提高集中采購活動的規范性。從最近一次集采考核情況看,集采機構采購文件編制的合規性進一步提高,各類采購信息發布及時、渠道規范,審批手續較為健全,采購活動組織也更加有序。
      二是批量采購工作穩步推進。中央單位從2011年8月起開始對臺式計算機和打印機推行批量集中采購改革試點,目前已將批量采購的品目擴大到便攜式計算機、空調、復印機、復印紙等6個品目。2015年中央集采機構共完成批量采購額約7.3億元,比2012年翻兩翻。批量采購的價格平均低于市場主流電商價格15%以上,有效節約了財政資金。國采中心開展的批量集中采購與協議供貨聯動,為解決協議供貨價格虛高問題作出了有益嘗試。
      三是政策功能得到較好落實。集采機構作為落實采購政策的主體力量,認真落實給予中小企業價格扣除、預留份額等優惠措施,嚴格執行節能產品政府采購清單,落實信息安全管理要求,促進了國內相關產業的發展。中央集采機構的采購活動,成為國內外觀察我國采購政策調整變化的風向標。
      四是采購信息化程度不斷提高。近年來,國采中心在網上商城、電子化評審、網上履約信息反饋等方面不斷進行探索。如在協議供貨和定點采購等投標數據量大的集中采購項目中,實行網上開標,大幅降低供應商投標成本;通過電子反拍、網上二次競價等措施,進一步降低采購價格;開發批量采購履約信息查詢功能,及時提供批量采購中標、成交產品的物流信息,努力為中央單位提供高效便捷的采購服務。
      總的來說,各中央集采機構通過建章立制,加強內控管理等措施,基本形成了程序規范、流程統一、操作專業的政府采購代理執行機制,在提高采購資金使用效益、落實政府采購政策、促進廉政建設等方面,發揮了不可替代的作用。特別是國采中心克服項目多、任務重等困難,2015年共完成采購金額182億元,完成采購項目1386個,有力保障了中央國家機關的正常運轉。當然也要看到,隨著集中采購業務量的不斷增加,集采機構也面臨著繁重采購任務與人手不足的矛盾,采購人員專業化水平難以適應復雜采購項目的需要,采購質量、價格、服務特別是采購效率方面還有較大的提升空間。
      二、政府采購改革和管理發展面臨的形勢和任務
      根據去年召開的全國政府采購工作會議的總體部署,當前和今后一段時期政府采購管理改革與發展的總體思路是:深入貫徹黨的十八大、十八屆三中、四中、五中全會精神,圍繞落實“四個全面”戰略布局,遵循建立現代財政制度要求,進一步深化政府采購制度改革,努力構建有利于結果導向的政府采購法律制度、政策體系、執行機制、監管模式,進一步推動政府采購管理從程序導向型向結果導向型的重大變革。
      一是更加注重完善采購管理鏈條,加快完善政府采購法律制度體系。重點是圍繞政府采購法實施條例,完善操作層面的制度,落實條例強化采購需求管理、加強履約驗收等創新舉措,盡快形成有利于公平競爭、規范管理和結果導向的制度體系。中央單位和集采機構要按照上述要求健全制度,補齊短板。
      二是更加注重政策實施效果,大力完善政府采購政策體系。進一步明確政策支持的重點,豐富政策支持手段,強化政策管理,將采購政策支持措施的著力點從評審環節向采購需求制定、采購方式選擇等前端延伸,加大采購需求標準、非招標采購方式等政策手段的應用。以需求標準和采購政策為抓手,發揮好政府采購在供給側改革中的積極作用,推進經濟結構調整和社會發展轉型。中央單位和集采機構要切實增強執行采購政策的自覺性和主動性,為地方做出良好示范。
      三是更加注重采購績效,持續完善政府采購執行機制。重點是建立健全政府采購內控管理機制,落實好采購項目預算公開、采購文件公開、合同公開、政府采購預算安排及執行總體情況公開等新的信息公開要求,推動采購活動的全流程公開。中央單位和集采機構要把內控管理和信息公開擺上突出位置,以內控促管理提升,以公開促行為規范。
      四是更加注重放管結合,積極創新政府采購監管模式。認真落實簡政放權要求,進一步簡化優化采購方式變更等程序性審核流程,為采購單位提供高效服務。堅持抓大放小,適當提高采購限額和公開招標數額標準。積極改進監管方式,創新監管手段,加強與審計部門的協作,明確各自監管和檢查的重點,形成監管合力。加強對采購活動中供應商、采購代理機構和評審專家的信用信息記錄,實現與社會信用體系的信息共享,推動建立守信激勵失信懲戒的工作機制。
      三、進一步做好中央單位集中采購工作
      集中采購是政府采購的主渠道和重要組成部分,做好中央單位集中采購工作對于推動全國政府采購制度的發展,具有重要的指導意義和示范作用。按照政府采購管理改革與發展的總體思路,推進中央集中采購應重點做好以下幾個方面的工作:
      (一)科學合理制定集中采購目錄及標準。新一期中央預算單位集中采購目錄及標準的制訂,將在充分聽取中央單位意見的基礎上,統籌考慮采購項目特點、落實政策功能要求和采購代理機構發展現狀等因素,按照集采機構專業化的發展定位,合理確定集中采購范圍。落實國家有關“放管服”改革的要求,提高分散采購限額和公開招標數額標準,降低招標比重和采購成本;簡化科研儀器設備采購管理,中央高校和科研院所對集中采購目錄內的項目可自行采購和選擇評審專家。
      (二)明確集中采購活動中的權責關系。對于納入集中采購目錄內的采購項目,采購人應當依法委托集采機構采購,并做好計劃填報、需求確定、合同簽訂、履約驗收、信息公開等方面工作。集采機構要加強對集中采購目錄內項目需求的研究,切實把好采購需求關,按照完整、明確、合規的要求,把采購政策、資產管理、安全要求落到實處。要加強對采購活動的組織管理,優先安排集中采購目錄內項目采購,確有余力的再承擔目錄外項目的采購任務,確保集中采購項目采購的順暢高效。要牢固樹立為采購人服務的理念,做好采購環節的相關服務工作,最大限度地滿足采購人的需求,切實提高采購人滿意度。
      (三)優化批量集中采購管理。針對批量集中采購存在的采購周期長、供應商履約不及時等問題,要在研究建立批量集中采購結果與協議供貨價格聯動機制的基礎上,適當提高批量集中采購品目中協議供貨的比例,滿足采購人臨時采購要求。探索建立采購人對供應商履約的評價機制,將評價結果運用到后續采購評審中,促使供應商為采購人提供更好 的產品和服務
      (四)加快采購文件標準化建設。采購文件標準化對于規范采購活動、落實采購政策功能、提高采購效能等都具有重要意義。國采中心要在通用類產品的需求標準和采購文件標準化建設工作中發揮支撐作用,結合產品市場行情和產業發展狀況,配合做好相關品目政府采購招標文件標準文本的研究制定工作,成熟一個,推出一個。各中央單位也要積極支持國采中心和財政部的工作,積極推廣應用政府采購標準化文本,為采購文件標準化建設多提意見和建議。
      (五)著力加強內控建設。加強政府采購內部控制機制建設,是黨的十八屆四中全會的明確要求。財政部正在研究制定政府采購活動中加強內控管理的指導意見。各中央單位和集采機構要高度重視政府采購內控建設,按照四中全會精神和財政部的要求抓好落實。重點針對采購活動中易發、多發的違法違規問題,抓住采購需求和評審規則制定、采購活動評審、合同訂立及履約驗收、信息公開等關鍵環節,強化內控措施,嚴控各類風險,提高采購活動的規范化和專業化水平。

     

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