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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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    財政部有關負責人就《政府采購競爭性磋商采購方式管理暫行辦法》、《政府和社會資本合作項目政府采購管理辦法》有關問題答記者問

    2017年10月09日 09:20 來源:財政部打印

       2015年1月21日 來源:國庫司
      為了深化政府采購制度改革,適應推進政府購買服務、推廣政府和社會資本合作(PPP)模式等工作需要,財政部制定發布了《政府采購競爭性磋商采購方式管理暫行辦法》(財庫〔2014〕214號,以下簡稱《磋商辦法》)和《政府和社會資本合作項目政府采購管理辦法》(財庫〔2014〕215號,以下簡稱《PPP辦法》)。近日,財政部國庫司(政府采購管理辦公室)有關負責人就《磋商辦法》和《PPP辦法》有關問題接受了記者采訪。
      問:制定《磋商辦法》和《PPP辦法》的背景是什么?
      答:制定《磋商辦法》和《PPP辦法》主要是順應兩方面的需要。一方面,是為了進一步貫徹黨的十八屆四中全會精神,堅持立法先行和依法采購。本屆政府提出了推進政府購買服務、推廣PPP模式等重要改革任務。與此相關的采購活動,在采購需求、采購方式、合同管理、履約驗收、績效評價等方面存在一定特殊性,需要在政府采購現行法律框架下,作出創新和針對性的制度安排,對具體工作進行指引和規范,以確保采購工作順暢、高效開展。另一方面,政府購買服務、推廣PPP模式等工作,具有較強的公共性和公益性,其采購活動應當充分發揮支持產業發展、鼓勵科技創新、節約資源、保護環境等政府采購政策功能,以促進經濟和社會政策目標的實現。因此,需要明確相關采購活動的法律適用和操作規則。
      問:競爭性磋商采購方式的核心內容、主要思路是什么,與競爭性談判采購方式有哪些聯系和區別?
      答:我國政府采購法規定的政府采購方式包括:公開招標、邀請招標、競爭性談判、單一來源采購、詢價、國務院政府采購監督管理部門認定的其他采購方式。競爭性磋商采購方式是財政部首次依法創新的采購方式,核心內容是“先明確采購需求、后競爭報價”的兩階段采購模式,倡導“物有所值”的價值目標。
      競爭性磋商和競爭性談判兩種采購方式在流程設計和具體規則上既有聯系又有區別:在“明確采購需求”階段,二者關于采購程序、供應商來源方式、磋商或談判公告要求、響應文件要求、磋商或談判小組組成等方面的要求基本一致;在“競爭報價”階段,競爭性磋商采用了類似公開招標的“綜合評分法”,區別于競爭性談判的“最低價成交”。之所以這樣設計,就是為了在需求完整、明確的基礎上實現合理報價和公平交易,并避免競爭性談判最低價成交可能導致的惡性競爭,將政府采購制度功能聚焦到“物有所值”的價值目標上來,達到“質量、價格、效率”的統一。
       問:競爭性磋商采購方式的適用范圍有哪些?
      答:《磋商辦法》規定了五種適用情形:一是政府購買服務項目;二是技術復雜或者性質特殊,不能確定詳細規格或者具體要求的;三是因藝術品采購、專利、專有技術或者服務的時間、數量事先不能確定等原因不能事先計算出價格總額的;四是市場競爭不充分的科研項目,以及需要扶持的科技成果轉化項目;五是按照招標投標法及其實施條例必須進行招標的工程建設項目以外的工程建設項目。其中,前三種情形主要適用于采購人難以事先確定采購需求或者合同條款,需要和供應商進行溝通協商的項目;第四種情形主要適用于科研項目采購中有效供應商不足三家,以及需要對科技創新進行扶持的項目;第五種情形主要適用于政府采購工程類項目,并與招標投標法律制度和《政府采購非招標采購方式管理辦法》(財政部令第74號)做了銜接。綜合來看,競爭性磋商采購方式在政府購買服務、PPP、科技創新扶持、技術復雜的專用設備等項目采購中將具有較高的可操作性和適用性。
      問:為什么PPP項目選擇社會資本合作者適用政府采購法律制度?
      答:《PPP辦法》主要適用于PPP項目實施機構(采購人)選擇合作社會資本(供應商)的情形。將PPP項目選擇合作者的過程納入政府采購管理的主要考慮是:
      一是PPP是政府從公共服務的“生產者”轉為“提供者”而進行的特殊采購活動。我國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”,對政府采購服務做了兜底式定義。從法律定義上看,PPP屬于服務項目政府采購范疇。同時,世界主要國際組織和國家在選擇PPP合作方時都遵循政府采購規則,并把服務和工程特許經營權的授予也視為政府采購公共服務的一種方式,將其納入政府采購監管。因此,將PPP項目選擇合作者的過程納入政府采購管理,可以進一步促進我國政府采購制度與國際規則對接,也符合世界貿易組織《政府采購協定》(GPA)對政府采購的定義——為了政府目的以任何合同方式開展的采購活動。
      二是我國政府采購法規定了公開招標、邀請招標、競爭性談判、詢價、單一來源五種采購方式,并授權監管部門認定新的采購方式。這些法定采購方式(包括競爭性磋商方式),能夠比較好地適用于PPP項目采購中公開競爭、選擇性競爭和有限競爭的情況,并充分實現“物有所值”的價值目標,使PPP項目采購更具可操作性。
      三是政府采購法律制度規定了優先采購節能環保產品,支持中小企業等宏觀調控和政策功能目標。將PPP項目選擇合作者的過程納入政府采購管理,將更加有利于PPP項目發揮公共性和公益性作用。
      問:《PPP辦法》的主要創新點有哪些?
      答:《PPP辦法》在現行政府采購法律制度框架下,充分借鑒了國際經驗,特別是聯合國貿易法委員會《私人融資基礎設施項目示范法》及其立法指南中的有效做法,并與《政府和社會資本合作模式操作指南(試行)》(財金〔2014〕113號)第四章“項目采購”的有關內容作了銜接。
      《PPP辦法》的主要創新之處在于:一是為了保證PPP項目采購過程順暢高效和實現“物有所值”價值目標,新增了競爭性磋商這一新的采購方式,引入了兩階段采購模式。二是為了保證PPP項目采購的成功率和減少后續爭議,新增了強制資格預審、現場考察和答疑、采購結果及合同文本公示等規范性要求。三是為了保證項目采購的質量和效果,創新了采購結果確認談判、項目實施機構可以自行選定評審專家等程序。四是為了維護國家安全和發揮政府采購政策功能,要求必須在資格預審公告、采購公告、采購文件、項目合同中列明采購本國貨物和服務、技術引進和轉讓等政策要求。五是結合PPP項目金額大、后續監管鏈條長等特點,創新了監管方式,對項目履約實行強制信用擔保,用市場化手段引入擔保機構進行第三方監管,以彌補行政監督手段的不足。同時,要求項目采購完成后公開項目采購合同,引入社會監督。六是針對PPP項目復雜程度高和采購人專業性不足的實際,明確具備相應條件和能力的政府采購代理機構可以承擔PPP項目政府采購業務,提供PPP項目咨詢服務的機構在按照財政部對政府采購代理機構管理的相關政策要求進行網上登記后,也可以從事PPP項目采購代理業務。

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