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    “失信被執行人”是否有資格參與投標

    2019年08月13日 09:26 來源:中國政府采購報打印

      ——對一起工程建設項目法院判例的分析與思考 

       蔡錕 

      裁判要旨 

      《最高人民法院關于公布失信被執行人名單信息的若干規定》在招投標中也應適用,未被法院列為失信被執行人屬于投標人應具備的必要資格條件。 

      案件回顧 

      三明小蕉機械產業園土石方工程項目招標人為三明市瑞云新區建設發展有限公司,招標代理機構為北京建友工程造價咨詢有限公司三明分公司,資金來源財政撥款,項目采取邀請招標的方式。受邀標的共有福建聯發建設工程有限公司(以下簡稱聯發公司)及順明公司等六家公司。當年1215日,該項目進行開標,開標前,順明公司放棄投標,包括聯發公司在內的其余五家公司經評標委員會資格標評審,投標人資格審查全部合格。開標后,聯發公司被推薦為第一中標候選人。同日,順明公司向三明市梅列區住房和城鄉規劃建設局(以下簡稱梅列住建局)投訴,稱本次招標有失信企業參與投標,請求建設主管部門查實。梅列住建局經調查后,于1222日作出了梅建[201*140號《招投標投訴處理決定書》(以下簡稱被訴處理決定書),認定土石方項目投標人聯發公司投標無效。聯發公司不服,于1224日向三明市梅列區人民政府申請行政復議,次日,梅列區政府受理了聯發公司的復議申請,并于次年216日作出了梅政行復[201*01號《行政復議決定書》(以下簡稱被訴復議決定書),維持梅列住建局作出的前述處理決定書,聯發公司不服向原審法院提起行政訴訟。 

      法院另查明,聯發公司在受邀前被福建省福州市中級人民法院列入失信被執行人名單,另外還被福建省三明市中級人民法院列入失信被執行人名單。 

      法院觀點 

      本案中,一審法院與二審法院在觀點上存在較大差異。 

      一審法院認為,聯發公司雖在受邀標前兩次被人民法院列入失信被執行人名單,但聯發公司是應邀參加招標,梅列住建局提供的招標文件中既未約定失信被執行人不得參與招標,也未對失信被執行人參與招標作任何限制,包括未要求參與招標人說明自己是否為失信被執行人。開標前,評標委員會依據投標人提交的《資格標》對投標人進行資格審查,聯發公司資格標審查全部合格。因此,聯發公司符合招標文件規定的投標人資格。同時《中華人民共和國招標投標法》(以下簡稱《招標投標法》)也沒有對失信被執行人不得參與招投標作出規定,聯發公司參加該次招標符合投標人的資格條件,其參加招標符合法律規定。此外,《最高人民法院關于公布失信被執行人名單信息的若干規定》及《福建省貫徹落實構建誠信懲戒失信合作備忘錄實施意見》(以下簡稱合作備忘錄事實意見)不能直接作為梅列住建局認定聯發公司不具有投標資格而確認聯發公司投標無效的法律、法規依據,應由發改、財政、金融、交通等相關職能部門依據上述規定在各自的行政主管領域內制定具體的信用懲戒措施,規定列入法院失信被執行人名單的不得參與招投標或中標后應作為無效標等處理后,方可禁止相應主體參加招投標活動。 

      據此,一審法院以被訴處理決定書缺乏法律依據為由,判決撤銷了該處理決定書及相應的復議決定書。 

      二審法院不同意一審法院意見。二審法院認為,邀請招標并不意味著可以放松條件,亦必須遵守法律法規。梅列住建局作為梅列區人民政府建設行政主管部門,具有受理并處理招標投標活動投訴的法定職權。法律的生命在于實施,司法解釋的意義在于落實。要完善違法失信行為懲戒機制,褒揚誠信,懲罰失信。本案中《最高人民法院關于公布失信被執行人名單信息的若干規定》及合作備忘錄實施意見應當適用。聯發公司在受邀招標活動中沒有過錯,并不能成為其失信行為受到懲罰的抗辯理由,梅列住建局行政監管的效率也不能成為聯發公司失信行為受到懲罰的抗辯理由。 

      由此,二審法院認為一審判決認定事實不清,判決撤銷了一審判決并維持了被訴處理決定書及相應的復議決定書。 

      焦點分析 

      本案雖然是關于工程建設項目招標投標中投標人資質條件認定的案件,但對與招標投標領域聯系密切、制度有相似之處的政府采購領域,亦有相應的參考及借鑒意義。 

      本案中的爭議焦點在于,被人民法院依據《最高人民法院關于公布失信被執行人名單信息的若干規定》而列為失信被執行人的投標人,是否在相關監管部門并未根據前述規定制定具體的信用懲戒措施以及招標文件未對此明確提出要求的情況下,也屬于資格條件不滿足信用要求而被排斥出合格投標人范圍。對此,一審法院認為,失信被執行人投標資格的否定,必須有相關監管領域內的直接具體規定,或者應當在招標文件中明確予以要求。但二審法院否定了一審法院的意見,認為無論是否存在直接具體規定以及招標文件是否明確提出要求,只要投標人被列為失信被執行人,其投標就應被否定。 

      雖然一審判決的說理已屬充分且具有一定合理性,但是二審法院的觀點與當前我國信用體系的制度構建及誠實守信的價值導向更為契合,亦具有相應的法律依據。 

      現代市場經濟是信用經濟,建立健全社會信用體系,是整頓和規范市場經濟秩序、改善市場信用環境、降低交易成本、防范經濟風險的重要舉措。我國當前在經濟領域信用缺失的問題比較突出,因此,《國務院關于印發社會信用體系建設規劃綱要(2014—2020年)的通知》中明確提出了信用建設的要求,該要求涉及工程建設項目招標投標領域以及政府采購領域。 

      在最高人民法院頒布《最高人民法院關于公布失信被執行人名單信息的若干規定》后,已與不同監管領域的部委簽署并公布了多個備忘錄及通知。2016120日,最高人民法院與各國家部委共同簽署了《關于對失信被執行人實施聯合懲戒的合作備忘錄》,要求財政部應依法限制失信被執行人作為供應商參加政府采購活動,亦涉及招標投標領域。2016830日,最高人民法院與國家發改委、工信部等八部委共同發布了《關于在招標投標活動中對失信被執行人實施聯合懲戒的通知》,其中要求對屬于失信被執行人的投標活動依法予以限制。 

      《招標投標法》及《中華人民共和國政府采購法》(以下簡稱《政府采購法》)中,在應當具備的資格條件部分,對投標人及供應商的信用也作出了相關規定。前者第十八條規定,國家對投標人的資格條件有規定的,依照其規定。該條并未對國家規定的形式進行限制,因此,具有將《最高人民法院關于公布失信被執行人名單信息的若干規定》及相關備忘錄和通知的內容納入解釋的空間。而后者第二十二條第一款第(二)項規定的更為明確,即供應商參加政府采購活動應當具有良好的商業信譽。 

      根據《最高人民法院關于公布失信被執行人名單信息的若干規定》第九條、第十條及第十一條的規定,失信被執行人名單存在撤銷、刪除及糾正機制,因此,無論是被錯誤列為失信被執行人還是被列為失信被執行人后履行完畢相關義務,投標人均有修復自身信用的可能及方法,且在回轉后,其參與投標的資質會自動恢復。由此可見,失信被執行人制度不會對政府采購的供應商或工程建設項目招投標的投標人帶來不可逆轉的負面影響,反而有利于促進其誠信及時履行法定義務。 

      當然,本案中一審法院的說理部分仍給予了我們思考的空間,最高人民法院與各國家部委共同簽署了《關于對失信被執行人實施聯合懲戒的合作備忘錄》在第五項其他事宜中要求,各部門和單位應密切協作,積極落實本備忘錄,制定失信被執行人信息的使用、管理、監督的相關實施細則和操作流程。因此,在各相關監管領域之內以一定規范性文件的形式將失信被執行人懲戒機制予以細化和規范,將為該制度的落實提供更為全面細致的法律依據,并避免產生相關的法律爭議。同時,在政府采購以及工程建設項目招投標中,監管部門應當要求采購人或招標人在采購文件中明確規定對失信被執行人的處理方法和評標標準,提前給予供應商或投標人警示。 

      (作者單位:北京達曉律師事務所) 

      編后 

      此前,浙江溫州某地關于商譽的案件引發爭議,對于商譽的判定莫衷一是。本案系對招標投標領域老賴的一種界定和處理,被法院列為失信被執行人,是否可以將其作為衡量商譽的一種標準,可有待進一步探討。 

      但針對之前的商譽一案,有業界專家指出,招標就像找朋友,真誠可靠本是招標人對投標人的主觀判斷,只要有三家符合資格參與競爭就算作滿足招標的法定要求,絕對公平很難實現。招標人不想與商譽有劣跡的供應商合作,合理。依據《政府采購法》第二十三條規定,資質、業績都是資格條件,采購人可以根據資質、業績來進行資格審查。采購人將商譽作為資質的重要內容,不想與資質有欠缺的供應商合作,合法。另外,一些地方的公開招標強制資格后審,相當于強制對方帶著附加條件來交朋友,這對投標人是不公平的。從這個角度看,投標人不依不撓地投訴可以理解。我國某些地區公開招標資格審查的一些做法,違背了《政府采購法》關于供應商資格的規定和原則,就像《政府采購貨物和服務招標投標管理辦法》(財政部令第87號)糾正評標委員會負責資格審查一樣,應考慮按照《政府采購法》第二十三條繼續糾正。 

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