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    沈德能:“逾期才答復”并不等同于“逾期未答復”

    2019年02月18日 08:59 來源:中國政府采購報打印

    ■ 沈德能

    案例回放

    某財政局在投訴處理中發現代理機構超過了法定的質疑答復期限后才做出質疑答復,遂對代理機構做出重罰:禁止其一年內代理政府采購業務。

    由于該處罰屬于對重大違法行為的懲處,同時,上述逾期答復的行為主體被列入“政府采購嚴重違法失信行為記錄名單”,實行失信聯合懲戒,該代理機構在處罰期限內被禁止參加全國范圍內的所有公共資源交易活動,業務全部被迫停止。

    在某些業內人士看來,逾期處理政府采購供應商的質疑或者建設工程招標的異議,是情有可原的,各種客觀的或者主觀的因素導致代理機構無法在法定答復期限內做出處理,進行答復。如代理機構等待采購人方面的回復意見,采購人遲遲不回復;如代理機構需要等待某些機構的回函或者產品生產廠家的說明情況等,都可能導致在法定答復期限內無法答復供應商的質疑或者投標人的異議。

    到底誰是誰非?筆者認為:

    一、在法定期限內答復質疑或者異議是法律法規明確規定的

    1.《中華人民共和國政府采購法》(以下簡稱《政府采購法》)第五十三條規定:采購人應當在收到供應商的書面質疑后七個工作日內作出答復,并以書面形式通知質疑供應商和其他有關供應商,但答復的內容不得涉及商業秘密。

    其第五十四條還指出,采購人委托采購代理機構采購的,供應商可以向采購代理機構提出詢問或者質疑,采購代理機構應當依照本法第五十一條、第五十三條的規定就采購人委托授權范圍內的事項作出答復。

    2.《中華人民共和國招標投標法實施條例》(以下簡稱《招標投標法實施條例》)第二十二條規定,潛在投標人或者其他利害關系人對資格預審文件有異議的,應當在提交資格預審申請文件截止時間2日前提出;對招標文件有異議的,應當在投標截止時間10日前提出。招標人應當自收到異議之日起3日內作出答復;作出答復前,應當暫停招標投標活動。其第四十四條第三款明確,投標人對開標有異議的,應當在開標現場提出,招標人應當當場作出答復,并制作記錄。其第五十四條第二款指出,投標人或者其他利害關系人對依法必須進行招標的項目的評標結果有異議的,應當在中標候選人公示期間提出。招標人應當自收到異議之日起3日內作出答復;作出答復前,應當暫停招標投標活動。

    綜上,法律法規對于答復質疑或者異議的期限用了“應當”二字的強制性規定,代理機構在法定期限內答復是其法定義務,沒有任何例外的情形,必須遵守這個強制性規定。

    二、代理機構逾期答復質疑或者異議是違法行為

    1.《中華人民共和國政府采購法實施條例》(以下簡稱《政府采購法實施條例》)第六十八條規定,采購人、采購代理機構有下列情形之一的,依照政府采購法第七十一條、第七十八條的規定追究法律責任:(八)對供應商的詢問、質疑逾期未作處理。

    2.《招標投標法實施條例》第七十七條第二款規定,招標人不按照規定對異議作出答復,繼續進行招標投標活動的,由有關行政監督部門責令改正,拒不改正或者不能改正并影響中標結果的,依照本條例第八十二條的規定處理。

    代理機構逾期后答復質疑或者異議的,從逾期到作出答復的時間內,客觀事實上屬于《政府采購法實施條例》第六十八條規定的“逾期未處理”或者《招標投標法實施條例》第七十七條第二款規定的“招標人不按照規定對異議作出答復”(即不按照規定的期限對異議作出答復),這都是違法行為。

    三、代理機構逾期答復質疑或者異議要承擔法律責任

    1.《政府采購法實施條例》明確規定要依照《政府采購法》第七十一條、第七十八條的規定追究法律責任:責令限期改正,給予警告,按照有關法律規定處以罰款,可以在一至三年內禁止其代理政府采購業務,構成犯罪的,依法追究刑事責任。

    2.《招標投標法實施條例》則僅規定由有關行政監督部門責令改正,并無其他處罰。

    四、爭議問題:代理機構逾期答復屬于主動改正違法行為,還需要作其他處罰嗎?

    如前所述,代理機構在法定期限內答復供應商的質疑或者投標人的異議是其法定的義務,違反這個法定義務必須承擔法律責任。

    但正如《政府采購法實施條例》第六十八條的規定,“對供應商的詢問、質疑逾期未作處理”才應當承擔法律責任。當行政監督管理部門發現時,代理機構雖然逾期但已經答復了質疑,以行政監督管理部門發現的時間點作為處理與否的判斷標準,則從文字上來理解就不應當是“逾期未作處理”,而是“逾期才處理”。如前所述,雖然這種情況是違法行為需要承擔法律責任(即從逾期到答復時的確是處在逾期未處理),但當行政監督管理部門發現時則已經處理和答復,即逾期后主動改正錯誤做出處理和答復。

    根據《政府采購法》第七十一條和《招標投標法實施條例》第七十七條的規定,首先的法律責任是責令改正,逾期才答復質疑或者異議是代理機構無需監管部門責令就主動改正的行為。

    如此主動改正錯誤是否還需要其他行政處罰?筆者認為,第一,需要明確的是逾期答復仍然是違法行為,否則就無需監管部門責令改正,而任何違法行為都必須承擔相應的法律責任;第二,在具體案例中,需要追究代理機構逾期答復的法律責任時,不應當在法律法規沒有明確規定的情況下追究責任。如《招標投標法實施條例》第七十七條第二款就沒有規定其他的法律責任;而《政府采購法實施條例》第六十八條規定“對供應商的詢問、質疑逾期未作處理”才應當承擔法律責任(以行政監督管理部門發現的時間點作為處理與否的判斷標準);第三,法律法規遺漏對于逾期答復質疑或者異議這一違法行為法律責任的規定。在《政府采購質疑和投訴辦法》(財政部令第94號)第五章的法律責任中也沒有具體區別逾期不答復和逾期答復兩種不同情況來追究責任。只是在第三十六條規定了“對質疑不予答復”的法律責任,未規定逾期答復的法律責任。

    盡管如此,筆者認為,在業務規范中明確提示代理機構可以逾期處理和答復投標人的異議是不合理的,因為這提示了代理機構可以做出違法行為。

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