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    關于促進政府采購公平競爭優化營商環境的通知

    2019年07月30日 16:33 來源:中國政府采購網打印

    財庫〔2019〕38號

    各中央預算單位,各省、自治區、直轄市、計劃單列市財政廳(局),新疆生產建設兵團財政局:

      為貫徹落實中央深改委審議通過的《深化政府采購制度改革方案》和《國務院辦公廳關于聚焦企業關切進一步推動優化營商環境政策落實的通知》(國辦發〔2018〕104號)有關要求,構建統一開放、競爭有序的政府采購市場體系,現就促進政府采購領域公平競爭、優化營商環境相關事項通知如下:

      一、全面清理政府采購領域妨礙公平競爭的規定和做法

      各地區、各部門應當嚴格落實《中華人民共和國政府采購法》等相關法律法規的要求,依法保障各類市場主體平等參與政府采購活動的權利。要全面清理政府采購領域妨礙公平競爭的規定和做法,重點清理和糾正以下問題:

      (一)以供應商的所有制形式、組織形式或者股權結構,對供應商實施差別待遇或者歧視待遇,對民營企業設置不平等條款,對內資企業和外資企業在中國境內生產的產品、提供的服務區別對待;

      (二)除小額零星采購適用的協議供貨、定點采購以及財政部另有規定的情形外,通過入圍方式設置備選庫、名錄庫、資格庫作為參與政府采購活動的資格條件,妨礙供應商進入政府采購市場;

      (三)要求供應商在政府采購活動前進行不必要的登記、注冊,或者要求設立分支機構,設置或者變相設置進入政府采購市場的障礙;

      (四)設置或者變相設置供應商規模、成立年限等門檻,限制供應商參與政府采購活動;

      (五)要求供應商購買指定軟件,作為參加電子化政府采購活動的條件;

      (六)不依法及時、有效、完整發布或者提供采購項目信息,妨礙供應商參與政府采購活動;

      (七)強制要求采購人采用抓鬮、搖號等隨機方式或者比選方式選擇采購代理機構,干預采購人自主選擇采購代理機構;

      (八)設置沒有法律法規依據的審批、備案、監管、處罰、收費等事項;

      (九)除《政府采購貨物和服務招標投標管理辦法》第六十八條規定的情形外,要求采購人采用隨機方式確定中標、成交供應商;

      (十)違反法律法規相關規定的其他妨礙公平競爭的情形。

      各地區、各部門要抓緊清理政府采購領域妨礙公平競爭的規定和做法,有關清理結果要及時向社會公開,并于2019年10月31日前報送財政部。

      二、嚴格執行公平競爭審查制度

      各地區、各部門制定涉及市場主體的政府采購制度辦法,要嚴格執行公平競爭審查制度,充分聽取市場主體和相關行業協會商會意見,評估對市場競爭的影響,防止出現排除、限制市場競爭問題。重點審查制度辦法是否設置不合理和歧視性的準入條件排斥潛在供應商參與政府采購活動,是否設置沒有法律法規依據的行政審批或者具有審批性質的備案,是否違規給予特定供應商優惠待遇等。經審查認為不具有排除、限制競爭效果的,可以頒布實施;具有排除、限制競爭效果的,應當不予出臺或者調整至符合相關要求后出臺;未經公平競爭審查的,不得出臺。

      在政府采購相關制度辦法實施過程中,應當定期或者適時評估其對全國統一市場和公平競爭的影響,對妨礙統一市場和公平競爭的,要及時修改完善或者予以廢止。

      三、加強政府采購執行管理

      優化采購活動辦事程序。對于供應商法人代表已經出具委托書的,不得要求供應商法人代表親自領購采購文件或者到場參加開標、談判等。對于采購人、采購代理機構可以通過互聯網或者相關信息系統查詢的信息,不得要求供應商提供。除必要的原件核對外,對于供應商能夠在線提供的材料,不得要求供應商同時提供紙質材料。對于供應商依照規定提交各類聲明函、承諾函的,不得要求其再提供有關部門出具的相關證明文件。

      細化采購活動執行要求。采購人允許采用分包方式履行合同的,應當在采購文件中明確可以分包履行的具體內容、金額或者比例。采購人、采購代理機構對投標(響應)文件的格式、形式要求應當簡化明確,不得因裝訂、紙張、文件排序等非實質性的格式、形式問題限制和影響供應商投標(響應)。實現電子化采購的,采購人、采購代理機構應當向供應商免費提供電子采購文件;暫未實現電子化采購的,鼓勵采購人、采購代理機構向供應商免費提供紙質采購文件。

      規范保證金收取和退還。采購人、采購代理機構應當允許供應商自主選擇以支票、匯票、本票、保函等非現金形式繳納或提交保證金。收取投標(響應)保證金的,采購人、采購代理機構約定的到賬(保函提交)截止時間應當與投標(響應)截止時間一致,并按照規定及時退還供應商。收取履約保證金的,應當在采購合同中約定履約保證金退還的方式、時間、條件和不予退還的情形,明確逾期退還履約保證金的違約責任。采購人、采購代理機構不得收取沒有法律法規依據的保證金。

      及時支付采購資金。政府采購合同應當約定資金支付的方式、時間和條件,明確逾期支付資金的違約責任。對于滿足合同約定支付條件的,采購人應當自收到發票后30日內將資金支付到合同約定的供應商賬戶,不得以機構變動、人員更替、政策調整等為由延遲付款,不得將采購文件和合同中未規定的義務作為向供應商付款的條件。

      完善對供應商的利益損害賠償和補償機制。采購人和供應商應當在政府采購合同中明確約定雙方的違約責任。對于因采購人原因導致變更、中止或者終止政府采購合同的,采購人應當依照合同約定對供應商受到的損失予以賠償或者補償。

      四、加快推進電子化政府采購

      推進采購項目電子化實施。要加快完善電子化政府采購平臺的網上交易功能,實現在線發布采購公告、提供采購文件、提交投標(響應)文件,實行電子開標、電子評審。逐步建立電子化政府采購平臺與財政業務、采購單位內部管理等信息系統的銜接,完善和優化合同簽訂、履約驗收、信用評價、用戶反饋、提交發票、資金支付等線上流程。

      加快實施“互聯網+政府采購”行動。積極推進電子化政府采購平臺和電子賣場建設,建立健全統一的技術標準和數據規范,逐步實現全國范圍內的互聯互通,推動與公共資源交易平臺數據共享,提升供應商參與政府采購活動的便利程度。

      五、進一步提升政府采購透明度

      加強政府采購透明度建設。完善政府采購信息發布平臺服務功能。中國政府采購網及地方分網等政府采購信息發布平臺應當提供便捷、免費的在線檢索服務,向市場主體無償提供所有依法公開的政府采購信息。推進開標活動對外公開,在保證正常開標秩序的前提下,允許除投標人及其代表之外的其他人員觀摩開標活動。

      推進采購意向公開。采購意向包括主要采購項目、采購內容及需求概況、預算金額、預計采購時間等。為便于供應商提前了解采購信息,各地區、各部門應當創造條件積極推進采購意向公開(涉密信息除外)。自2020年起,選擇部分中央部門和地方開展公開采購意向試點。在試點基礎上,逐步實現各級預算單位采購意向公開。

      六、完善政府采購質疑投訴和行政裁決機制

      暢通供應商質疑投訴渠道。研究建立與“互聯網+政府采購”相適應的快速裁決通道,為供應商提供標準統一、高效便捷的維權服務。對供應商提出的質疑和投訴,采購人、采購代理機構和各級財政部門應當依法及時答復和處理。完善質疑答復內部控制制度,有條件的采購人和集中采購機構應當實現政府采購質疑答復崗位與操作執行崗位相分離,進一步健全政府采購質疑投訴處理機制。

      依法依規實施行政處罰。各級財政部門實施政府采購行政處罰,應當依法保障當事人的告知權、陳述權、申辯權、聽證權等,保證程序合法。堅持處罰和教育相結合的原則,正確適用和區分從輕處罰、減輕處罰和不予處罰情形,作出的行政處罰應與違法行為的事實、性質、情節以及社會危害程度相當。

      各地區、各部門要充分認識維護政府采購公平競爭市場秩序、優化政府采購營商環境的重要意義,加強組織領導,明確工作責任,周密安排部署,強化監督檢查,確保各項要求落實到位。

      本通知自2019年9月1日起施行。

      財  政  部

      2019年7月26日

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