某縣春風學(xue)校“智慧校園設(she)備(bei)采(cai)(cai)購項目(mu)”（以下簡稱本項目(mu)），投資(zi)規(gui)模(mo)約2000萬元，資(zi)金來(lai)源為(wei)財政性(xing)資(zi)金，招標文件載明項目(mu)屬性(xing)為(wei)工程類，采(cai)(cai)購方式為(wei)公開(kai)(kai)招標，評(ping)標辦(ban)法為(wei)綜合評(ping)分法，采(cai)(cai)用分散采(cai)(cai)購模(mo)式。該項目(mu)于2018年6月15日在(zai)某縣公共資(zi)源交(jiao)易中(zhong)心開(kai)(kai)標，經評(ping)標委員會評(ping)審，A公司被確(que)定為(wei)中(zhong)標供應(ying)商。

6月21日，投標(biao)(biao)人(ren)B公司向(xiang)采(cai)(cai)購(gou)(gou)人(ren)和代(dai)理公司提出質(zhi)(zhi)疑，稱該項目評(ping)標(biao)(biao)委員(yuan)(yuan)會組成人(ren)數為(wei)(wei)5人(ren)，價(jia)(jia)格(ge)(ge)(ge)分(fen)采(cai)(cai)用“取(qu)不低(di)于平均(jun)價(jia)(jia)80%有效投標(biao)(biao)人(ren)報價(jia)(jia)的平均(jun)價(jia)(jia)作為(wei)(wei)評(ping)標(biao)(biao)基準(zhun)價(jia)(jia)”，違反了政府(fu)(fu)采(cai)(cai)購(gou)(gou)法(fa)律法(fa)規(gui)強制性規(gui)定。理由是：本項目屬(shu)于政府(fu)(fu)采(cai)(cai)購(gou)(gou)貨物類項目，采(cai)(cai)購(gou)(gou)預算金額超過(guo)1000萬(wan)元，依據《政府(fu)(fu)采(cai)(cai)購(gou)(gou)貨物和服務(wu)招標(biao)(biao)投標(biao)(biao)管理辦法(fa)》（財政部令(ling)第87號）第二(er)十七條(tiao)(tiao)和第五十五條(tiao)(tiao)之規(gui)定，評(ping)標(biao)(biao)委員(yuan)(yuan)會成員(yuan)(yuan)應為(wei)(wei)7人(ren)以上單數，綜(zong)合評(ping)分(fen)法(fa)中“價(jia)(jia)格(ge)(ge)(ge)分(fen)應當采(cai)(cai)用低(di)價(jia)(jia)優先法(fa)計算，即滿足招標(biao)(biao)文件要求且投標(biao)(biao)價(jia)(jia)格(ge)(ge)(ge)最低(di)的投標(biao)(biao)報價(jia)(jia)為(wei)(wei)評(ping)標(biao)(biao)基準(zhun)價(jia)(jia)，其價(jia)(jia)格(ge)(ge)(ge)分(fen)為(wei)(wei)滿分(fen)”。質(zhi)(zhi)疑人(ren)要求修改招標(biao)(biao)文件后重新招標(biao)(biao)。

6月28日，采(cai)(cai)購(gou)人(ren)和代理機構對B公(gong)司的質疑事項進行了答復，認為本(ben)項目包括智慧校園13個子系統及(ji)安裝(zhuang)(zhuang)等內(nei)容，依據(ju)財政(zheng)部(bu)《政(zheng)府(fu)采(cai)(cai)購(gou)品目分類(lei)(lei)(lei)目錄》（財庫〔2013〕189號）關于(yu)工(gong)(gong)程(cheng)、貨物和服(fu)務的分類(lei)(lei)(lei)標(biao)準，本(ben)項目屬(shu)于(yu)工(gong)(gong)程(cheng)—建筑安裝(zhuang)(zhuang)工(gong)(gong)程(cheng)—智能化安裝(zhuang)(zhuang)工(gong)(gong)程(cheng)。采(cai)(cai)購(gou)人(ren)根(gen)據(ju)工(gong)(gong)程(cheng)類(lei)(lei)(lei)項目編制招(zhao)標(biao)文件(jian)，且招(zhao)標(biao)文件(jian)中規(gui)定(ding)評標(biao)委員會組成(cheng)人(ren)數為5人(ren)，價(jia)格分采(cai)(cai)用“取不低于(yu)平(ping)均(jun)價(jia)80%有(you)效投(tou)標(biao)人(ren)報價(jia)的平(ping)均(jun)價(jia)作(zuo)為評標(biao)基準價(jia)”，符合《招(zhao)標(biao)投(tou)標(biao)法(fa)》及(ji)其實(shi)施條例(li)的規(gui)定(ding)，并未違反(fan)政(zheng)府(fu)采(cai)(cai)購(gou)法(fa)律法(fa)規(gui)強制性規(gui)定(ding)，質疑人(ren)的質疑事項不成(cheng)立。

7月12日(ri)，B公(gong)司因(yin)對(dui)采購人和(he)代理(li)(li)機(ji)構(gou)關(guan)于質疑(yi)的(de)答(da)復(fu)不滿意，遂向(xiang)當(dang)(dang)地(di)政(zheng)府(fu)采購監(jian)(jian)督(du)部(bu)(bu)門提起投(tou)(tou)訴(su)(su)(su)。政(zheng)府(fu)采購監(jian)(jian)督(du)部(bu)(bu)門依據(ju)《政(zheng)府(fu)采購質疑(yi)和(he)投(tou)(tou)訴(su)(su)(su)辦法(fa)》（財政(zheng)部(bu)(bu)令第94號）向(xiang)采購人、代理(li)(li)機(ji)構(gou)和(he)中標(biao)(biao)(biao)供應(ying)商等(deng)當(dang)(dang)事(shi)人發出了(le)投(tou)(tou)訴(su)(su)(su)答(da)復(fu)通知書及(ji)投(tou)(tou)訴(su)(su)(su)書副本(ben)。各當(dang)(dang)事(shi)人進行了(le)書面答(da)復(fu)，均認為(wei)本(ben)項(xiang)目屬于工程(cheng)類(lei)項(xiang)目，評標(biao)(biao)(biao)委員會組成(cheng)和(he)價格分(fen)計算(suan)方式符合《招標(biao)(biao)(biao)投(tou)(tou)標(biao)(biao)(biao)法(fa)》及(ji)其實(shi)施條(tiao)例(li)的(de)規定，未違反政(zheng)府(fu)采購法(fa)律(lv)法(fa)規強(qiang)制(zhi)性(xing)規定，質疑(yi)人要求修改招標(biao)(biao)(biao)文(wen)件后重新招標(biao)(biao)(biao)的(de)訴(su)(su)(su)求缺少法(fa)律(lv)依據(ju)。政(zheng)府(fu)采購監(jian)(jian)督(du)部(bu)(bu)門對(dui)投(tou)(tou)訴(su)(su)(su)人、被投(tou)(tou)訴(su)(su)(su)人和(he)相關(guan)當(dang)(dang)事(shi)人的(de)投(tou)(tou)訴(su)(su)(su)材料(liao)及(ji)證據(ju)進行了(le)書面審查(cha)，并專(zhuan)門向(xiang)上級政(zheng)府(fu)采購監(jian)(jian)督(du)部(bu)(bu)門進行了(le)請(qing)示。最終，政(zheng)府(fu)采購監(jian)(jian)督(du)部(bu)(bu)門認為(wei)，投(tou)(tou)訴(su)(su)(su)人的(de)投(tou)(tou)訴(su)(su)(su)事(shi)項(xiang)缺乏事(shi)實(shi)根據(ju)和(he)法(fa)律(lv)依據(ju)，投(tou)(tou)訴(su)(su)(su)事(shi)項(xiang)不成(cheng)立，并于7月26日(ri)出具《投(tou)(tou)訴(su)(su)(su)處理(li)(li)決定書》，駁回了(le)投(tou)(tou)訴(su)(su)(su)人的(de)投(tou)(tou)訴(su)(su)(su)。

8月15日，B公司因對(dui)政(zheng)(zheng)府(fu)采購(gou)監督部(bu)門《投訴(su)處(chu)理(li)決定書》不服，又向(xiang)某(mou)縣人民(min)(min)法院提起行(xing)政(zheng)(zheng)訴(su)訟。10月29日，某(mou)縣人民(min)(min)法院作出(chu)一審判決，駁回B公司的訴(su)訟請求。此后，B公司在法定上訴(su)期限(xian)內未再上訴(su)。

案例剖析

本案爭議的焦(jiao)點(dian)是案涉項(xiang)目是否(fou)屬于(yu)政府采購工程(cheng)類項(xiang)目，筆(bi)者下面(mian)(mian)從事實根據和法(fa)律依據兩(liang)個方面(mian)(mian)進行分析(xi)。

依(yi)據(ju)工(gong)(gong)(gong)程(cheng)(cheng)項(xiang)(xiang)目的(de)(de)(de)(de)通常分(fen)類，建筑安(an)裝工(gong)(gong)(gong)程(cheng)(cheng)是工(gong)(gong)(gong)程(cheng)(cheng)項(xiang)(xiang)目的(de)(de)(de)(de)分(fen)支，智能(neng)化(hua)工(gong)(gong)(gong)程(cheng)(cheng)又是建筑安(an)裝工(gong)(gong)(gong)程(cheng)(cheng)的(de)(de)(de)(de)一個子(zi)分(fen)支，因而(er)智能(neng)化(hua)工(gong)(gong)(gong)程(cheng)(cheng)歸屬于工(gong)(gong)(gong)程(cheng)(cheng)類項(xiang)(xiang)目。智能(neng)化(hua)工(gong)(gong)(gong)程(cheng)(cheng)通常包含門(men)禁系(xi)統(tong)、對講系(xi)統(tong)、遠(yuan)程(cheng)(cheng)控制系(xi)統(tong)、監(jian)控系(xi)統(tong)、網絡信(xin)息服務(wu)系(xi)統(tong)、智能(neng)照明系(xi)統(tong)、樓宇(yu)自動化(hua)系(xi)統(tong)等。根據(ju)《建筑業(ye)(ye)企業(ye)(ye)資質管理(li)(li)規(gui)定》（住房和(he)城鄉建設部令第22號(hao)）、《注冊建造(zao)師執業(ye)(ye)管理(li)(li)辦法(試行）》（建市〔2008〕48號(hao)）和(he)《注冊建造(zao)師執業(ye)(ye)工(gong)(gong)(gong)程(cheng)(cheng)規(gui)模標準（試行）》（建市〔2007〕171號(hao)）等文件的(de)(de)(de)(de)規(gui)定，智能(neng)化(hua)安(an)裝工(gong)(gong)(gong)程(cheng)(cheng)項(xiang)(xiang)目要求施(shi)工(gong)(gong)(gong)企業(ye)(ye)應具有(you)(you)相(xiang)應等級(ji)的(de)(de)(de)(de)電子(zi)與智能(neng)化(hua)工(gong)(gong)(gong)程(cheng)(cheng)專業(ye)(ye)承包資質及(ji)安(an)全生(sheng)產許可證，且項(xiang)(xiang)目經理(li)(li)（項(xiang)(xiang)目負責(ze)人(ren)）應具有(you)(you)相(xiang)應等級(ji)的(de)(de)(de)(de)機(ji)電工(gong)(gong)(gong)程(cheng)(cheng)專業(ye)(ye)注冊建造(zao)師資格。

案(an)例(li)中的項(xiang)目(mu)招(zhao)標文件、技術規(gui)范(fan)書、工(gong)程(cheng)(cheng)量清單及施工(gong)設(she)計圖紙等資料證(zheng)實了兩點(dian)：一是項(xiang)目(mu)招(zhao)標內容為(wei)某縣春風(feng)學校“智(zhi)(zhi)慧校園設(she)備(bei)采(cai)購(gou)項(xiang)目(mu)”，包含(han)13個子(zi)系(xi)統(tong)及安裝，如一卡通(tong)管理(li)系(xi)統(tong)、智(zhi)(zhi)慧圖書館系(xi)統(tong)、校園廣播系(xi)統(tong)、多媒體(ti)會議(yi)系(xi)統(tong)、云辦公系(xi)統(tong)、電(dian)(dian)子(zi)班牌(pai)系(xi)統(tong)等。二(er)(er)是項(xiang)目(mu)招(zhao)標公告中關于供應(ying)商資格要求包含(han)“投標人(ren)應(ying)具(ju)有電(dian)(dian)子(zi)與智(zhi)(zhi)能化工(gong)程(cheng)(cheng)專業承包二(er)(er)級(ji)(ji)及以上或有效期內的建筑智(zhi)(zhi)能化工(gong)程(cheng)(cheng)設(she)計與施工(gong)一體(ti)化二(er)(er)級(ji)(ji)及以上資質(zhi)”和“具(ju)備(bei)有效期內的安全(quan)生產(chan)許可(ke)證(zheng)和項(xiang)目(mu)經(jing)理(li)（項(xiang)目(mu)負責人(ren)）應(ying)具(ju)有機電(dian)(dian)工(gong)程(cheng)(cheng)專業二(er)(er)級(ji)(ji)及以上注冊建造師(shi)資質(zhi)，B類(lei)安全(quan)生產(chan)考核(he)合(he)格證(zheng)”等內容。

據此，從(cong)本項目招(zhao)標(biao)所包(bao)含的(de)內容和(he)招(zhao)標(biao)公告所要求的(de)投標(biao)人資(zi)(zi)質及項目經理資(zi)(zi)格兩方面來看，案(an)例中的(de)項目屬于工(gong)程(cheng)－建筑(zhu)安裝工(gong)程(cheng)－智(zhi)能化安裝工(gong)程(cheng)，具有(you)事實根據。

《政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)貨(huo)物和服(fu)務招標(biao)投(tou)標(biao)管理辦法》第七條規定(ding)，“采(cai)(cai)(cai)(cai)購(gou)人(ren)應(ying)當按(an)照(zhao)財政(zheng)(zheng)(zheng)部制(zhi)定(ding)的(de)(de)(de)《政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)品目(mu)(mu)分(fen)(fen)類(lei)(lei)目(mu)(mu)錄》確定(ding)采(cai)(cai)(cai)(cai)購(gou)項目(mu)(mu)屬(shu)性。按(an)照(zhao)《政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)品目(mu)(mu)分(fen)(fen)類(lei)(lei)目(mu)(mu)錄》無(wu)法確定(ding)的(de)(de)(de)，按(an)照(zhao)有利于采(cai)(cai)(cai)(cai)購(gou)項目(mu)(mu)實施(shi)的(de)(de)(de)原則確定(ding)。”從該規定(ding)可以看出，政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)項目(mu)(mu)屬(shu)性的(de)(de)(de)認(ren)定(ding)主體是(shi)(shi)采(cai)(cai)(cai)(cai)購(gou)人(ren)，認(ren)定(ding)依據是(shi)(shi)《政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)品目(mu)(mu)分(fen)(fen)類(lei)(lei)目(mu)(mu)錄》。按(an)照(zhao)《政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)品目(mu)(mu)分(fen)(fen)類(lei)(lei)目(mu)(mu)錄》無(wu)法認(ren)定(ding)的(de)(de)(de)，應(ying)按(an)照(zhao)有利于政(zheng)(zheng)(zheng)府(fu)(fu)采(cai)(cai)(cai)(cai)購(gou)項目(mu)(mu)實施(shi)的(de)(de)(de)原則進行認(ren)定(ding)。

《政府(fu)采購品目分(fen)類(lei)目錄》將政府(fu)采購項(xiang)目分(fen)為三大類(lei)：貨物、工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)和(he)服(fu)務。其中，工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)類(lei)包(bao)(bao)括(kuo)建筑物施工(gong)(gong)(gong)(gong)(gong)(gong)(gong)、構(gou)筑物施工(gong)(gong)(gong)(gong)(gong)(gong)(gong)、工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)準備、預制(zhi)構(gou)件組裝(zhuang)(zhuang)和(he)裝(zhuang)(zhuang)配(pei)、專業施工(gong)(gong)(gong)(gong)(gong)(gong)(gong)、建筑安(an)裝(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、裝(zhuang)(zhuang)修工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、修繕工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)設(she)備租賃和(he)其他建筑工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)；建筑安(an)裝(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)括(kuo)電子工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)安(an)裝(zhuang)(zhuang)、智能化(hua)安(an)裝(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、電力(li)系統(tong)安(an)裝(zhuang)(zhuang)、供水管道(dao)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)和(he)下(xia)水道(dao)鋪設(she)、供暖(nuan)設(she)備安(an)裝(zhuang)(zhuang)、通(tong)風和(he)空調(diao)設(she)備安(an)裝(zhuang)(zhuang)、燃氣設(she)備安(an)裝(zhuang)(zhuang)、大型設(she)備安(an)裝(zhuang)(zhuang)和(he)其他安(an)裝(zhuang)(zhuang)；智能化(hua)安(an)裝(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)包(bao)(bao)括(kuo)樓宇設(she)備自控系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、保安(an)監控和(he)防盜報(bao)(bao)警(jing)系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、智能卡系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、通(tong)信系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、衛星和(he)共用電視系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、計算機網絡系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、廣播系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)、火災(zai)報(bao)(bao)警(jing)系統(tong)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)和(he)其他智能化(hua)安(an)裝(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)(cheng)。

根據(ju)《政府(fu)(fu)采(cai)(cai)(cai)(cai)購法》第四條(tiao)(tiao)(tiao)(tiao)和(he)《政府(fu)(fu)采(cai)(cai)(cai)(cai)購法實施(shi)條(tiao)(tiao)(tiao)(tiao)例(li)》第七(qi)條(tiao)(tiao)(tiao)(tiao)的(de)(de)規(gui)定，政府(fu)(fu)采(cai)(cai)(cai)(cai)購工(gong)程項目以及與工(gong)程項目有(you)關(guan)的(de)(de)貨物、服務，采(cai)(cai)(cai)(cai)用招(zhao)標(biao)(biao)方(fang)式（公開招(zhao)標(biao)(biao)、邀請招(zhao)標(biao)(biao)），適用《招(zhao)標(biao)(biao)投標(biao)(biao)法》及其(qi)實施(shi)條(tiao)(tiao)(tiao)(tiao)例(li)；采(cai)(cai)(cai)(cai)用非招(zhao)標(biao)(biao)方(fang)式采(cai)(cai)(cai)(cai)購的(de)(de)，適用《政府(fu)(fu)采(cai)(cai)(cai)(cai)購法》及其(qi)實施(shi)條(tiao)(tiao)(tiao)(tiao)例(li)。

據此，采(cai)購人根據該項目(mu)的(de)招(zhao)標內容，依(yi)據《政府采(cai)購品(pin)目(mu)分類目(mu)錄》認定本項目(mu)的(de)屬性為工(gong)程－建(jian)筑安裝(zhuang)工(gong)程－智(zhi)能化(hua)安裝(zhuang)工(gong)程具有法律(lv)依(yi)據。

通過(guo)上文對事(shi)實根據和(he)法(fa)律(lv)依據的(de)分析(xi)，可(ke)以(yi)得出如下結(jie)論：采(cai)購人(ren)根據案例項目工(gong)程類的(de)屬(shu)性編制招(zhao)(zhao)(zhao)標(biao)(biao)(biao)文件，并在招(zhao)(zhao)(zhao)標(biao)(biao)(biao)文件中規(gui)定評(ping)(ping)標(biao)(biao)(biao)委員會組成人(ren)數為(wei)5人(ren)，價格(ge)分采(cai)用“取不(bu)低于平均價80%有效投(tou)標(biao)(biao)(biao)人(ren)報(bao)價的(de)平均價作為(wei)評(ping)(ping)標(biao)(biao)(biao)基準價”，符合《招(zhao)(zhao)(zhao)標(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)法(fa)》及其實施條例等法(fa)律(lv)法(fa)規(gui)關于評(ping)(ping)標(biao)(biao)(biao)委員會組成和(he)價格(ge)分計算方式的(de)規(gui)定，并未違反(fan)政府采(cai)購法(fa)律(lv)法(fa)規(gui)強制性規(gui)定。

案例啟示

案例中的(de)(de)(de)(de)項(xiang)目(mu)(mu)屬于工(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)(she)(she)項(xiang)目(mu)(mu)并采(cai)用(yong)(yong)了公開(kai)(kai)招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)方(fang)式，依據相(xiang)關規(gui)定，其適用(yong)(yong)《招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)投標(biao)(biao)法(fa)》及(ji)其實施條例，因而應(ying)采(cai)用(yong)(yong)工(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)(she)(she)項(xiang)目(mu)(mu)的(de)(de)(de)(de)招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)采(cai)購(gou)流程(cheng)(cheng)，項(xiang)目(mu)(mu)的(de)(de)(de)(de)立(li)項(xiang)、招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)公告的(de)(de)(de)(de)發(fa)布、投標(biao)(biao)人資格的(de)(de)(de)(de)要求、招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)文件的(de)(de)(de)(de)編制、評標(biao)(biao)辦(ban)(ban)法(fa)的(de)(de)(de)(de)設(she)(she)(she)(she)定、招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)投標(biao)(biao)過程(cheng)(cheng)的(de)(de)(de)(de)監督、中標(biao)(biao)候選人的(de)(de)(de)(de)公示(shi)、異議和(he)投訴的(de)(de)(de)(de)處(chu)理等(deng)均應(ying)遵(zun)守《國(guo)務院辦(ban)(ban)公廳關于推進(jin)公共資源配置領(ling)域政府信息公開(kai)(kai)的(de)(de)(de)(de)意(yi)見》（國(guo)辦(ban)(ban)發(fa)〔2017〕97號）、《工(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)(she)(she)項(xiang)目(mu)(mu)施工(gong)(gong)招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)投標(biao)(biao)辦(ban)(ban)法(fa)》（國(guo)家(jia)發(fa)改委(wei)(wei)等(deng)七部委(wei)(wei)令第30號）和(he)《工(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)(she)(she)項(xiang)目(mu)(mu)招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)投標(biao)(biao)活動投訴處(chu)理辦(ban)(ban)法(fa)》（國(guo)家(jia)發(fa)改委(wei)(wei)等(deng)七部委(wei)(wei)令第11號）等(deng)工(gong)(gong)程(cheng)(cheng)建(jian)(jian)設(she)(she)(she)(she)項(xiang)目(mu)(mu)招(zhao)(zhao)(zhao)(zhao)標(biao)(biao)投標(biao)(biao)的(de)(de)(de)(de)相(xiang)關規(gui)定。

通(tong)過梳理(li)發現(xian)，案例中項目(mu)的(de)(de)招(zhao)(zhao)(zhao)標(biao)(biao)文件(jian)規(gui)定(ding)的(de)(de)實質(zhi)性內容雖然符合《招(zhao)(zhao)(zhao)標(biao)(biao)投(tou)(tou)標(biao)(biao)法》及其(qi)實施條(tiao)例等(deng)相(xiang)(xiang)關規(gui)定(ding)，但(dan)是招(zhao)(zhao)(zhao)標(biao)(biao)采(cai)購(gou)(gou)流(liu)程(cheng)(cheng)卻(que)直接套用了(le)《政府(fu)采(cai)購(gou)(gou)貨(huo)(huo)物(wu)(wu)和服(fu)務(wu)招(zhao)(zhao)(zhao)標(biao)(biao)投(tou)(tou)標(biao)(biao)管理(li)辦法》的(de)(de)規(gui)定(ding)，與上述工程(cheng)(cheng)建設項目(mu)招(zhao)(zhao)(zhao)標(biao)(biao)投(tou)(tou)標(biao)(biao)的(de)(de)具體規(gui)定(ding)存在(zai)(zai)沖突(tu)，招(zhao)(zhao)(zhao)標(biao)(biao)采(cai)購(gou)(gou)流(liu)程(cheng)(cheng)上存在(zai)(zai)瑕疵。這也提(ti)醒行業從業人(ren)員在(zai)(zai)政府(fu)采(cai)購(gou)(gou)操作實務(wu)中要特別注(zhu)意不(bu)(bu)同(tong)屬性和采(cai)購(gou)(gou)方(fang)式的(de)(de)項目(mu)適用法律(lv)法規(gui)和辦理(li)流(liu)程(cheng)(cheng)不(bu)(bu)盡相(xiang)(xiang)同(tong)，如招(zhao)(zhao)(zhao)標(biao)(biao)方(fang)式和非招(zhao)(zhao)(zhao)標(biao)(biao)方(fang)式的(de)(de)工程(cheng)(cheng)建設項目(mu)不(bu)(bu)相(xiang)(xiang)同(tong)，招(zhao)(zhao)(zhao)標(biao)(biao)方(fang)式和非招(zhao)(zhao)(zhao)標(biao)(biao)方(fang)式的(de)(de)貨(huo)(huo)物(wu)(wu)和服(fu)務(wu)也不(bu)(bu)相(xiang)(xiang)同(tong)。

古人云，“規外求圓，無圓矣；法外求平，無平矣。”界定政府采購(gou)項(xiang)目屬性必須要(yao)(yao)堅持合(he)(he)法、合(he)(he)理原則，減(jian)少不(bu)必要(yao)(yao)的質疑和(he)投(tou)訴，進而提高項(xiang)目實施效率。

所謂合法(fa)原則，首先要依據(ju)《政(zheng)府采(cai)(cai)購法(fa)》及(ji)其實(shi)施(shi)條例、《招(zhao)標(biao)投標(biao)法(fa)》及(ji)其實(shi)施(shi)條例進行界定(ding)。其次(ci)要依據(ju)政(zheng)府采(cai)(cai)購主管部門規章(zhang)的(de)細(xi)化規定(ding)進行界定(ding)。如《政(zheng)府采(cai)(cai)購貨物(wu)和服務招(zhao)標(biao)投標(biao)管理辦法(fa)》《政(zheng)府采(cai)(cai)購非招(zhao)標(biao)采(cai)(cai)購方式管理辦法(fa)》和《政(zheng)府采(cai)(cai)購品(pin)目(mu)分(fen)類(lei)目(mu)錄》等。特(te)別是《政(zheng)府采(cai)(cai)購品(pin)目(mu)分(fen)類(lei)目(mu)錄》對(dui)政(zheng)府采(cai)(cai)購貨物(wu)、工程、服務進行了(le)詳細(xi)分(fen)類(lei)，絕大部分(fen)政(zheng)府采(cai)(cai)購項目(mu)的(de)屬性都可(ke)據(ju)此界定(ding)。

所謂合理原(yuan)則(ze)，是依據法(fa)律法(fa)規規章及(ji)《政府采(cai)購(gou)(gou)品目(mu)分(fen)類目(mu)錄》仍無法(fa)界(jie)(jie)定時應遵循的(de)原(yuan)則(ze)，主(zhu)要是指“有利于采(cai)購(gou)(gou)項(xiang)(xiang)(xiang)(xiang)目(mu)”的(de)原(yuan)則(ze)。該原(yuan)則(ze)的(de)本(ben)質是還(huan)權于采(cai)購(gou)(gou)人(ren)，但采(cai)購(gou)(gou)人(ren)不(bu)能任(ren)性(xing)行使此項(xiang)(xiang)(xiang)(xiang)權利，特(te)別是在(zai)項(xiang)(xiang)(xiang)(xiang)目(mu)本(ben)身(shen)包(bao)含工(gong)程(cheng)、貨(huo)物(wu)(wu)或服務(wu)中兩(liang)種以(yi)上(shang)屬性(xing)的(de)內容的(de)情形下(xia)，采(cai)購(gou)(gou)人(ren)要認真分(fen)析、綜合研判，不(bu)能孤立(li)地、教條地界(jie)(jie)定項(xiang)(xiang)(xiang)(xiang)目(mu)的(de)屬性(xing)，否則(ze)將不(bu)利于采(cai)購(gou)(gou)項(xiang)(xiang)(xiang)(xiang)目(mu)的(de)有效實施。也就(jiu)是說，采(cai)購(gou)(gou)人(ren)既要考(kao)慮工(gong)程(cheng)、貨(huo)物(wu)(wu)和服務(wu)內容之間的(de)關(guan)聯性(xing)，也要考(kao)慮工(gong)程(cheng)、貨(huo)物(wu)(wu)和服務(wu)內容本(ben)身(shen)的(de)擴張(zhang)性(xing)，只有兩(liang)者皆(jie)顧，才能切(qie)實做(zuo)好政府采(cai)購(gou)(gou)相關(guan)工(gong)作。

 作者：儲成(cheng)鵬

 作者單(dan)位：安徽省六(liu)安市公共(gong)資源交易監督管理局(ju)

來源(yuan)：《招標采購管(guan)理(li)》