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    劉慧:開放環境下的政府采購制度設計與改革問題

    2019年05月16日 09:39 來源:中國政府采購雜志打印

      

    國際關系學院黨委書記劉慧教授在“深化政府采購制度改革政策理論研討會暨中國政府采購年會”上發言

       中國當前進行政府采購制度改革面臨的契機   

      當前中國的政府采購制度改革到了最好的時期。  

      從國內看,2018年習近平總書記主持召開的中央全面深化改革委員會第五次會議通過了深化政府采購制度改革方案,這是建國以來第一次在如此高層級討論政府采購制度建設和改革的問題。在此之前在博鰲亞洲論壇2018年年會上,習總書記作為國家領袖,對國際社會發出了中國要加快加入政府采購協議進程的莊嚴承諾。這一切讓我們可以看到,政府采購制度建設和改革迎來了有史以來最好的契機。  

      從國際社會看,由于我國的經濟總量連續十年排在世界第二,外部壓力逐漸加大,使得我們必須背水一戰,改革政府采購那些不適應新形勢新環境的制度。  

      

    政府采購改革過程中面臨的問題及建議  

      一是目前政府采購改革任務繁重。  

      我國政府采購規模現在已經達到了歷史最高點,達到3萬多億元人民幣,占GDP的將近4%,并且每年都會有所增長。但是按照歐盟的統計,中國政府采購如果加上公共工程,以及國有企業的公共采購等,規模可能占GDP的20%。所以,在如此大規模任務下進行改革,任務十分艱巨。  

      二是現行的政府采購制度體系已經運行多年  

      我們的思維模式和行動習慣已經基本形成,既有的制度規章已經“成龍配套”。若進行改革,會比從無到有,在一張白紙上繪畫難很多。  

      三是政府采購所處環境已經發生根本性改變。  

      現在進行的政府采購制度改革是在國際高度并廣泛關注的情況下進行的。作為經濟貿易大國,中國已經走進世界的舞臺中央,行為處事、制定政策必須以大國思維來分析問題,應當以符合舞臺中央地位的方式去解決問題。政府采購領域的管理者需要有這方面的準備。換句話說,政府采購應當用國際化的思維去考慮制度建設和改革問題。  

      四是政府采購制度目標的偏離問題。  

      從目前情況看,我們給政府采購賦予了很多政策功能,但是哪些政策功能是最關鍵的,政府采購制度到底要解決什么問題,這是政府采購制度改革首先需要明確的。即,是要發揮政府采購的政策功能,或要發揮政府采購原本的功能,還是在眾多功能中突出一些重要政策功能?需要我們深入思考。  

      《政府采購法》實施以來的一個普遍想法是,《政府采購法》能夠解決所有問題。現實一旦出現問題,又傾向于推倒重來。現在要進行政府采購制度改革,是不是意味著此次改革能夠解決所有問題呢?我覺得不是。設計一個完美的制度來解決現實當中的所有問題,這是不現實的。所以我理解,政府采購制度改革其實是一個制度再設計問題,是系統化頂層設計問題。  

      第一,需要以問題為導向,把當今存在的所有政府采購的問題進行歸納和梳理,分出主次,對那些需要重點解決的問題以橫向和縱向為軸分出類別和層次;需要重點關注體制機制等方面的核心問題。  

      第二,重點開展頂層、系統設計。政府采購立法之后的探索和自下而上的試點已經足夠充分,當前特別需要解決法律之間、規章之間,政策規定與實際操作之間各種不和諧或者不統一問題。總之,對制度改革就是制度再造、再設計。  

      第三,制度改革和設計中應該給政府采購操作留有一定的空間。成功的政府采購制度改革應該是:一方面讓制度盡可能的完美,能解決關鍵問題不留遺憾;同時,還應該為各個地方的具體運行部門和實際操作者留有一定的解決具體問題的空間。當然,這個余量和空間究竟多大才是科學的,這又是對那些政策制訂者和改革者的能力的考驗,是對那些得到靈活運用政策空間的操作者們的能力的考驗。總之,政府采購制度改革后,對我們的能力建設又將提出更新的要求。 

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