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    瞄準流廢標原因,助力采購一次性到位

    2019年08月09日 09:02 來源:中國政府采購報打印

      ——四川省樂山市2019年上半年政府采購項目流標廢標統計分析 

      ■ 劉鋒 李曉平 

      流標和廢標是政府采購失敗最常見的兩種情形。為進一步提高政府采購效率,降低采購成本,今年6月,樂山市政府采購中心建立了采購項目流廢標分析報告制度,一旦出現流廢標(含非招方式采購失敗)情況,及時總結分析原因,提出整改意見,推動采購項目順利完成。近日,我中心統計了2019年上半年政府采購流廢標情況,對造成流廢標的原因作了分析,以供借鑒。 

      流廢標項目統計 

      2019年上半年,我中心共辦理采購項目36個。從采購方式看,公開招標項目項目20個、競爭性談判項目9個、競爭性磋商項目4個、詢價項目2個,單一來源項目1個。從品目分類看,信息化建設項目25個、物業服務項目5個、PPP項目2個、辦公家具項目1個、辦公用品項目1個,其他項目2個。從流廢標情況看,有10個項目出現流廢標,占27.78%,其中信息化建設項目7個、物業服務項目2個,辦公用品項目1個;10個項目流廢標總次數16次,其中流標3次、廢標13次,同一項目最高廢標3次。 

      流廢標原因分析 

      本報告從市場、采購人、供應商、專家、代理機構五個方面對流廢標原因加以分析。 

      市場方面。36個采購項目中,參與供應商最多的為某工程造價服務磋商項目,預算52萬元,報名供應商22家,參與21家;其次為某家具談判項目,預算26萬元,報名供應商18家,參與15家,兩個項目均一次性采購成功。13次廢標中,參與供應商有3家的6次、4家的4次、5家的3次,加上3次因不足3家供應商而導致的流標,充分反映出市場響應程度不高,并未形成有效競爭。分析認為,造成這種情況的原因較多,如項目本身規模較小,對市場沒有吸引力;技術參數要求過高,將一些潛在供應商排斥在市場之外;大量同類采購信息充斥市場,客觀上造成一些項目關注度不夠;市場價格變動導致供應商成本相對增加,使原本有意參加的也不得不放棄,等等。 

      采購人方面。采購人在政府采購活動中占據主體地位,采購預算、采購方式選擇、采購需求制定等前期工作均由采購人完成,其效果如何事關采購項目的成敗。 

      采購預算過低是導致流標的原因之一,但上述3個流標項目最終均完成了采購任務,且節資率較高,說明不存在采購預算過低的情況。 

      采購方式選擇錯誤會直接導致廢標,或者選擇與項目不匹配的采購方式會直接影響市場競爭的充分性,間接導致流廢標發生的幾率增大。上述10個流廢標項目采購方式的選擇均是恰當的。 

      采購需求設置不當是發生流廢標的主要根源。有2個項目因技術參數過高導致多次廢標,其中一個是某單位辦公用紙采購項目,要求供應商提供所有采購紙品的檢測報告,復印紙要求提供符合優等品標準的檢測報告,而所有參與的供應商只提供了合格品標準的檢測報告,已連續2次廢標,分析認為復印紙使用普遍、工藝成熟、貨源充足,沒有必要要求提供高標準的檢測報告。 

      供應商方面。投標(響應)文件不滿足實質性條款。在13次廢標中,有5次因不滿足資格性要求導致,有4次因不滿足星號條款導致,有1次因未提供強制節能產品導致,此類原因十分突出。從對所有采購文件的審核來看,每一個實質性條款均毫無歧義地作了明確表述,供應商應當完全知曉。依然出現這樣的問題,分析認為,有的供應商抱有僥幸心理,萬一評審專家疏漏就會有蒙混過關的機會;有的供應商采用“試水”策略,借機了解其他供應商的相關情況,為自己下次投標做好謀劃;有的供應商自認為受到“不公平待遇”,故意作無效響應,用無聲方式表達對采購活動的“抗議”,等等。 

      投標(響應)文件出現形式性紕漏。13次廢標中,有4次因簽字蓋章不符合要求導致,這種錯誤顯得比較“低級”。分析認為,供應商故意為之的可能性不大,因為涉及的3個項目均只有3家供應商參與,任何一家出局都會致使整個項目廢標,這無疑增加了所有參與供應商的成本。究其主要原因,應該是供應商工作人員在制作標書時不夠仔細,審核把關也不夠嚴格,從而產生紕漏,更加印證了“細節決定成敗”的業內認知。 

      報價錯誤。報價錯誤的情況在政府采購活動中是非常少見的,但有1個項目就因此廢標。該項目采用競爭性磋商方式,有2家供應商在未提高響應文件中承諾的產品及其服務質量的情況下,第二輪報價超過第一輪報價,磋商小組對其響應文件作無效處理,導致廢標。分析認為,有可能是供應商核算錯誤,只好“自我出局”;也可能是供應商故意為之,制造重新采購的機會,以預留充足的時間做一些準備工作,增強競爭力。 

      專家方面。需求論證常常流于形式。專家參與需求論證是為了幫助采購人制定更加科學、更加合理的采購需求,然而現實狀況是一些專家不認真履職盡責,有時一味迎合采購人,有時被潛在供應商“綁架”,導致采購需求問題層出不窮。分析認為,上述10個項目在受理前審核采購需求時,都在一定程度上存在資格條件用于評分、特定行業業績用于加分、將明文取消的證書作為評審條件、提供生產廠家授權、評分細則未量化等問題,個別項目還比較嚴重。雖然經采購中心事前與采購人溝通建議,10個廢標項目中的絕大部分上述問題得到了有效解決,沒有因此廢標,但值得注意的是,這些問題如果解決不徹底,很容易引發質疑投訴,增加項目被責令廢標的風險。 

      評審錯誤。某單位考評系統采購項目競爭性磋商文件要求:“本采購項目需要接入上級主管機關建設的平臺,供應商應在響應文件中提供系統承建廠商出具的接口開放合作協議書,如未提供,將作無效響應處理”,并作為符合性審查內容中的實質性條款。磋商小組判定該要求與《政府采購貨物和服務招標投標管理辦法 》(財政部令第87號)(以下簡稱“87號令”)第十七條“采購人、采購代理機構……也不得通過將除進口貨物以外的生產廠家授權、承諾、證明、背書等作為資格要求,對投標人實行差別待遇或者歧視待遇” 之規定相違背,故停止評審,導致廢標。分析認為,磋商小組引用停止評審的依據錯誤,該項目采用競爭性磋商方式采購,不適用于87號令。 

      代理機構方面。代理機構作為政府采購的執行方,應該依法履行職責,在編制采購文件時,要對采購需求進行審核把關,發現存在以不合理條件對供應商實行差別待遇或者歧視待遇、評分細則不對應等問題時,須及時建議采購人修改完善;在執行采購程序時,要嚴格遵守相關法律法規,既不能畫蛇添足,也不能偷工減料;在復核評審結果時,要體現專業性和責任心,對專家擬廢標的項目進行重點復核,減少因專家失誤造成的廢標。此次分析的10個流廢標項目中,采購中心相關環節均未出現問題。 

      此次統計分析的10個流廢標項目,市政府采購中心均分別向有關方面進行了反饋,提出意見建議50余條,目前已有8個項目實現了成功采購。由于原因分析和具體建議是相對應的,且建議數量過多,本文不再對具體建議進行贅述。該制度的建立,通過對流廢標的統計分析,有利于幫助采購各方順利實施采購活動,最終提高采購效率,降低采購成本。 

      (作者單位:四川省樂山市政府采購中心) 

      提示 

      “流標”一詞在政府采購法律制度體現中沒有出現過,屬于業內對沒有供應商參與采購活動而采購失敗情形的通俗叫法。為了更好地區分采購失敗的情形,本文將經過評審委員會(資格性審查小組、評標委員會、談判小組、磋商小組、單一來源價格協商小組)評審后采購失敗的情形統稱為廢標,將報名或提交投標(響應)文件不足三家而采購失敗的情形統稱為流標。 

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