政府采购制度创制研究

【作者】 胡兰玲；

【导师】 柏桦；

【作者基本信息】 南开大学 ， 中外政治制度， 2013， 博士

【摘要】 以公共财政为基础的政府采购制度,既是市场经济发展的必然结果,也是国家政策目标实现的重要手段,不但发挥着对整个社会经济生活的宏观调控作用,而且促进社会主义市场经济的健康发展。我国政府采购市场呈现出蓬勃发展态势,在采购市场中所占的比例越来越大,对市场经济的影响也不容忽视,因此,政府采购制度的规范与完善,既关系到采购市场的兴衰,又关系到市场的经济秩序,更关系到政策目标与社会影响。政府采购制度,既有相关的立法,又有相关的制度,还有社会自身的因素,其构建必须在综合衡量的基础上,进行优化配置,才能够充分发挥政府采购职能,实行政府采购的目标。《中华人民共和国政府采购法》(以下简称“采购法”)于2003年起实施,至今已有10年,有关的实施细则仍然以“意见稿”的形式在征求意见,而与之相关的法律法规并没有及时调整,有关的制度也没有成为体系,由此引发一些问题则难以及时解决。当政府采购纷争出现以后,无论是法律适用,抑或是制度的规范,都难以解决,以至于对簿公堂,宣诸媒体,在网络上广为传播,使公众难以明辨是非。在这种情况下,完善政府采购制度,将公正、公平、公开原则落实到现实,使公众能够在法律制度层面理解纠纷产生及解决的途径,引导公众从制度的角度看待纠纷与解决,参与到政府采购的监督,乃是急切需要解决的问题。因此,从经济、政治、管理、法律、社会等多维度视角,完善我国政府采购理论,构建政府采购制度,是非常必要的。基于问题的存在,分析问题出现的原因,在法律制度应该完善的立意下,对政府采购进行全面的认识,参照国外成功经验,结合中国具体情况,提出切实可行的完善措施,是本文的重点所在。政府采购本身具有深刻的内涵,涉及到国家与社会的各个层面,而政府采购制度必须确保政府采购顺利实施,将政府采购功能充分发挥,也必须在国家与社会这个大环境下进行通盘考虑,而权利救济、监管制度、绿色采购等完善措施,正是从国家与社会的关系进行延伸的,其最终目的是完善我国政府采购制度。论文主要部分为四章。第一章为政府采购制度的缘起、目标及原则。政府采购制度形成于自由资本主义时期,是长期政府采购实践的结果,旨在规范政府采购行为、实施规范化管理。在现代市场经济下,国外政府采购法律已经形成体系,与之有关的制度也趋于细化。我国政府采购是在社会主义市场经济初步发展的情况下出现的,与之有关的法律制度也是陆续形成,亟待规范及完善的方面正在逐步解决。“采购法”确立我国政府采购的政策目标是：采购国货、保护环境、扶持不发达地区和少数民族地区、促进中小企业发展。各政策目标之间有必要做到在价值排序、各自的限度方面协调一致,以维护社会利益；政府采购应遵循的原则是公开、公平、公正与诚实信用原则,这些原则是政府采购顺利实施并最终达到其既定目标的重要保障。第二章是政府采购的定位。政府采购具有主体特定性、非盈利性、资金来源的公共性等特征,在国民经济运行中发挥着提供公共产品、调节国民经济运行、节约财政支出的作用；由于政府采购的特点,决定了“采购法”作为部门法,应归属于经济法；政府采购合同应定位为民事合同；“采购法”与相关部门法,如与招投标法的关系,应本着理清关系,解决法律适用的原则,将二法归一,招标投标历来作为政府采购的最主要方法,应接受“采购法”的调整,应将《招标投标法》纳入“采购法”中。第三章是政府采购法律关系。政府采购法律关系是由主体、客体和内容三要素构成。在政府采购法中享有权利承担义务的人,是政府采购法律关系的主体,既包括权利主体,也包括义务主体,权利主体是供应商,其享有公平竞争权、知情权和救济权；义务主体是采购人,其应如实履行政府采购信息披露的义务,供应商与采购人作为政府采购法律关系的双方当事人,其法律地位是形式平等而实质不平等,由于供应商与采购人在信息的获得、经济力量对比上存在着不对称,且制度设置不利于供应商进行救济,二者地位有强有弱,供应商为弱势主体,而采购人为强势主体,供应商权利容易受损害,应对其权利加以保障；政府采购法律关系的客体范围为：采购对象(货物、服务和工程)、用于采购所需的采购资金,以及具体的政府采购行为。第四章是政府采购制度的完善。针对政府采购制度中存在的问题,提出了完善建议。关于供应商权利救济制度,行政救济应废除质疑前置程序、设立独立的受理机构,并扩大救济对象；司法救济应增加民事诉讼救济通道,提起民事诉讼的主体的范围,应包括受到损害的供应商和潜在的供应商；关于政府采购监管制度,应该完善监管法律体系,统一监管主体,实行内部监管与外部监管,事先监管与事中、事后监管,公权监管与私权监管相结合的制度,对政府采购进行有效监管；关于政府绿色采购制度,应以法律为基石,制定科学的绿色标准,切实实现政府采购的绿色化,以促进整个市场的可持续发展。更多还原

【Abstract】 The government procurement system which is based on the public finances, is not only the inevitable result of the development of market economy, but also the important means to achieve the National policy goals. It plays a key role in macroeconomic regulation and controlling the whole social economic life and promoting the healthy development of socialist market economy as well. Our country’s Government procurement system is booming, the proportion in purchasing market is becoming larger and larger and we should not ignore the impact on the market economy. Therefore, the regulation and improvement of the government procurement system is related to the rise and fall of the procurement market,the economic order of the market and the policy goals and the social impact as well. The legal system of Government procurement has the relevant legislation,the related system and the social factors. Its construction must be based on the comprehensive measure and optimizing configuration. Only in this way, the legal system is able to play the functions of government procurement and achieve objectives of the government procurement." The government procurement law of the People’s Republic of China"(hereinafter referred to as "Procurement Law")has been implemented for ten years since it had been issued in2003.Detailed rules for the law still in the form of "the paper" to take advice, but the related laws and regulations are not adjusted in time, some problems which result from this are very difficult to be solved in time. In this situation, it’s very urgent to perfect the legal system of Government procurement and make the principles of justice,faimess and openness come to the real;ty. So the public can understand the production and solution of the dispute in legal" dspects,1ad the public concern the production and solution of the dispute in the point of legal system and participate in the supervision of the legal system of Government procurement. Therefore, it is necessary to improve the Government procurement theory and construct the legal system of Government procurement from economy, politics, management, legal, social and other multi-dimensional perspective.One of the focus of this paper is to analysis the cause of the problem and have a comprehensive understand of government procurement in the point of the idea that the legal system should be completed. The other focus of this paper is to bring up the reality measures by absorbing other country’s experience and considering our country’s reality. In this paper, I try my best to reorganize and consolidate the related theories and construct our country’s legal system of Government Procurement. The Government Procurement has its own profound intention, it involves every aspects of the country and society and the legal system of Government Procurement must guarantee the Government Procurement carry out smoothly and give full play the Government Procurement function. All of this should be considered under the circumstances of the state and society. As for the perfect measures such as right remedy,supervision system and green purchasing, it is from the extension of the relationship between state and society, its ultimate goal is to improve our country’s legal system of Government ProcurementThis paper has four main chapters. The first chapter is to analysis the theory of the Government Procurement legal system. The Government Procurement legal system formed in the free capital socialist period and is the result of the Government Procurement practice for a long time, its purpose is to regulate the behavior of the Government Procurement and implement standardized management. In the modern market economy, the law of foreign Government Procurement has been formed system and related system also tend to be more detailed. Our country’s Government Procurement is emerged in the case of a preliminary socialist market economy development and related legal system is gradually formed, some aspects that need standardize and perfect are solved step by step."The Government Procurement Law" has established our country’s purpose of Government Procurement policy, include procurement domestic goods, protect the environment,support underdeveloped and ethnic minority areas, promote the development of small and medium-sized enterprises. Between various policy objectives it is necessary to coordinate in the aspect of value and the limits of their own in order to protect the social interest. The legal principles of the Government Procurement are openness, fairness, justice and good faith. These principles are important security of smooth implementation of Government Procurement and ultimately achieve its stated goals.The second chapter is the location of the legal system of Government Procurement. The Government Procurement has some characteristic such as the specificity of the subject, nonprofit, the commonality of funding sources, normalization, policy and so on. The Government Procurement play a key role in provision of public goods, regulation the operation of national economy and saving fiscal expenditure. Because of the characteristics of the Government Procurement,it is decided the "Procurement Law" is a department of economic law; The Government Procurement contract should be positioned as a civil contract; The relations between "Government Procurement Law" and other related department such as the Bidding Law should insist on the principle of clear relationship and resolving the application of law and combine the two laws. As Government Procurement the main method, tendering and bidding should accept the adjustment of "Government Procurement law". The "Bidding Law" should be included in the "Government Procurement Law".The third chapter is the Government Procurement legal relationship. Government Procurement legal relation is composed of three elements of subject, object and content. The body of the Government Procurement law relations are these people who enjoy rights and assume the obligations. Right subject is supplier which enjoy the right of fair competition, right to know and right of relief; Compulsory subject is purchasing agent, they have the obligation of disclosure of Government Procurement information. Suppliers and purchasing agent is the parties of the legal relationship, its legal status is formal equality but substantial inequality, because of the inequality between suppliers and purchasing agent in information acquisition and in comparison of economic power. The Government Procurement legal system has disadvantage in relief of the suppliers. There are differences in status between them, the supplier is weak subject, but the purchasing agent is strong subject. The rights of the supplier are susceptible to damage, the legal system should protect their rights; The object of the Government Procurement Law includes the object of procurement cargo, service and project);procurement fund and specific government procurement behavior. The fourth chapter is the improvement of the Government Procurement legal system. I put forward some suggestions about improvement by aiming at the problems existing in the government procurement legal system. First of all,about the construction of relief system of the supplier rights, we should abolish the prepositional procedure, set up independent of the accepting institutions and expand the relief object; we should also add relief channels of civil litigation in judicial remedy, the scope of the subject of civil lawsuit should include the supplier who has been damaged and the potential suppliers; The second point,as for the Government Procurement supervision system, in order to have effective regulation on Government Procurement, we should improve supervision legal system and unify regulatory subject, carry out the combination system in internal supervision and external supervision, regulation in advance,during the period and after the event, the supervision of public power and private power; Last but not the least, about Government Green Procurement system, we should take law as the cornerstone and set scientific green standards,achieve the green government procurement in order to promote the sustainable development of the market更多还原