某縣(xian)春風學校(xiao)“智慧校(xiao)園(yuan)設備采(cai)購項目”（以下簡稱本項目），投資(zi)(zi)規模約2000萬元，資(zi)(zi)金(jin)來源為財政性資(zi)(zi)金(jin)，招標(biao)(biao)(biao)(biao)文件載明項目屬性為工程類，采(cai)購方(fang)式為公開(kai)招標(biao)(biao)(biao)(biao)，評標(biao)(biao)(biao)(biao)辦法為綜(zong)合評分(fen)法，采(cai)用(yong)分(fen)散采(cai)購模式。該(gai)項目于(yu)2018年(nian)6月15日在某縣(xian)公共資(zi)(zi)源交易(yi)中(zhong)心(xin)開(kai)標(biao)(biao)(biao)(biao)，經評標(biao)(biao)(biao)(biao)委員會評審(shen)，A公司被確定為中(zhong)標(biao)(biao)(biao)(biao)供應商。

6月21日(ri)，投(tou)標(biao)(biao)(biao)人(ren)B公司向(xiang)采(cai)購(gou)人(ren)和代理公司提出質(zhi)疑，稱該項(xiang)(xiang)目評(ping)(ping)(ping)標(biao)(biao)(biao)委(wei)(wei)員(yuan)會(hui)組成(cheng)人(ren)數(shu)為(wei)5人(ren)，價(jia)(jia)(jia)(jia)(jia)格分采(cai)用(yong)“取不低于平(ping)均價(jia)(jia)(jia)(jia)(jia)80%有效投(tou)標(biao)(biao)(biao)人(ren)報價(jia)(jia)(jia)(jia)(jia)的平(ping)均價(jia)(jia)(jia)(jia)(jia)作為(wei)評(ping)(ping)(ping)標(biao)(biao)(biao)基準價(jia)(jia)(jia)(jia)(jia)”，違反了政(zheng)府(fu)采(cai)購(gou)法(fa)(fa)律法(fa)(fa)規強制(zhi)性規定。理由(you)是(shi)：本項(xiang)(xiang)目屬(shu)于政(zheng)府(fu)采(cai)購(gou)貨物類項(xiang)(xiang)目，采(cai)購(gou)預算金額超過(guo)1000萬元，依據《政(zheng)府(fu)采(cai)購(gou)貨物和服務招(zhao)(zhao)標(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)管理辦法(fa)(fa)》（財政(zheng)部令第(di)87號）第(di)二十(shi)七條和第(di)五(wu)十(shi)五(wu)條之(zhi)規定，評(ping)(ping)(ping)標(biao)(biao)(biao)委(wei)(wei)員(yuan)會(hui)成(cheng)員(yuan)應為(wei)7人(ren)以上單數(shu)，綜合(he)評(ping)(ping)(ping)分法(fa)(fa)中“價(jia)(jia)(jia)(jia)(jia)格分應當采(cai)用(yong)低價(jia)(jia)(jia)(jia)(jia)優(you)先法(fa)(fa)計算，即滿足招(zhao)(zhao)標(biao)(biao)(biao)文件要求且投(tou)標(biao)(biao)(biao)價(jia)(jia)(jia)(jia)(jia)格最低的投(tou)標(biao)(biao)(biao)報價(jia)(jia)(jia)(jia)(jia)為(wei)評(ping)(ping)(ping)標(biao)(biao)(biao)基準價(jia)(jia)(jia)(jia)(jia)，其(qi)價(jia)(jia)(jia)(jia)(jia)格分為(wei)滿分”。質(zhi)疑人(ren)要求修改招(zhao)(zhao)標(biao)(biao)(biao)文件后重新招(zhao)(zhao)標(biao)(biao)(biao)。

6月28日，采(cai)(cai)購(gou)(gou)人(ren)(ren)和代理機構對B公司的質(zhi)(zhi)疑事項(xiang)(xiang)進行了答復，認為(wei)本項(xiang)(xiang)目包(bao)括智慧校園13個(ge)子系統及安裝(zhuang)等內容，依據(ju)財政(zheng)部《政(zheng)府采(cai)(cai)購(gou)(gou)品目分類目錄》（財庫〔2013〕189號(hao)）關于工程(cheng)、貨物和服(fu)務的分類標(biao)(biao)準(zhun)，本項(xiang)(xiang)目屬(shu)于工程(cheng)—建(jian)筑(zhu)安裝(zhuang)工程(cheng)—智能化安裝(zhuang)工程(cheng)。采(cai)(cai)購(gou)(gou)人(ren)(ren)根據(ju)工程(cheng)類項(xiang)(xiang)目編制(zhi)招(zhao)標(biao)(biao)文件，且招(zhao)標(biao)(biao)文件中規(gui)定(ding)評(ping)標(biao)(biao)委(wei)員會組成(cheng)人(ren)(ren)數為(wei)5人(ren)(ren)，價(jia)(jia)格分采(cai)(cai)用(yong)“取不(bu)低(di)于平(ping)均價(jia)(jia)80%有效投標(biao)(biao)人(ren)(ren)報(bao)價(jia)(jia)的平(ping)均價(jia)(jia)作為(wei)評(ping)標(biao)(biao)基準(zhun)價(jia)(jia)”，符合(he)《招(zhao)標(biao)(biao)投標(biao)(biao)法(fa)》及其(qi)實施(shi)條(tiao)例的規(gui)定(ding)，并(bing)未違反(fan)政(zheng)府采(cai)(cai)購(gou)(gou)法(fa)律法(fa)規(gui)強(qiang)制(zhi)性(xing)規(gui)定(ding)，質(zhi)(zhi)疑人(ren)(ren)的質(zhi)(zhi)疑事項(xiang)(xiang)不(bu)成(cheng)立(li)。

7月12日(ri)，B公司因(yin)對采(cai)購(gou)(gou)人(ren)(ren)和(he)(he)代(dai)理(li)機構(gou)關于質(zhi)疑的(de)(de)(de)(de)答復(fu)不滿意，遂(sui)向當(dang)(dang)地政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)監(jian)(jian)督(du)部(bu)(bu)門(men)提起(qi)投(tou)(tou)訴(su)(su)(su)(su)(su)。政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)監(jian)(jian)督(du)部(bu)(bu)門(men)依(yi)據(ju)《政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)質(zhi)疑和(he)(he)投(tou)(tou)訴(su)(su)(su)(su)(su)辦(ban)法(fa)(fa)(fa)》（財政(zheng)(zheng)部(bu)(bu)令(ling)第94號）向采(cai)購(gou)(gou)人(ren)(ren)、代(dai)理(li)機構(gou)和(he)(he)中標供應商等當(dang)(dang)事(shi)人(ren)(ren)發出了(le)(le)投(tou)(tou)訴(su)(su)(su)(su)(su)答復(fu)通知書(shu)及投(tou)(tou)訴(su)(su)(su)(su)(su)書(shu)副本。各當(dang)(dang)事(shi)人(ren)(ren)進行(xing)了(le)(le)書(shu)面(mian)答復(fu)，均認為本項(xiang)目(mu)屬(shu)于工(gong)程類項(xiang)目(mu)，評(ping)標委員會組成和(he)(he)價(jia)格分計算(suan)方式(shi)符合《招(zhao)(zhao)標投(tou)(tou)標法(fa)(fa)(fa)》及其實(shi)施條例的(de)(de)(de)(de)規(gui)定，未違反(fan)政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)法(fa)(fa)(fa)律法(fa)(fa)(fa)規(gui)強制性規(gui)定，質(zhi)疑人(ren)(ren)要求(qiu)修改招(zhao)(zhao)標文件后重(zhong)新招(zhao)(zhao)標的(de)(de)(de)(de)訴(su)(su)(su)(su)(su)求(qiu)缺(que)少法(fa)(fa)(fa)律依(yi)據(ju)。政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)監(jian)(jian)督(du)部(bu)(bu)門(men)對投(tou)(tou)訴(su)(su)(su)(su)(su)人(ren)(ren)、被投(tou)(tou)訴(su)(su)(su)(su)(su)人(ren)(ren)和(he)(he)相關當(dang)(dang)事(shi)人(ren)(ren)的(de)(de)(de)(de)投(tou)(tou)訴(su)(su)(su)(su)(su)材料及證據(ju)進行(xing)了(le)(le)書(shu)面(mian)審(shen)查，并(bing)專門(men)向上級政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)監(jian)(jian)督(du)部(bu)(bu)門(men)進行(xing)了(le)(le)請示。最終，政(zheng)(zheng)府(fu)(fu)(fu)(fu)采(cai)購(gou)(gou)監(jian)(jian)督(du)部(bu)(bu)門(men)認為，投(tou)(tou)訴(su)(su)(su)(su)(su)人(ren)(ren)的(de)(de)(de)(de)投(tou)(tou)訴(su)(su)(su)(su)(su)事(shi)項(xiang)缺(que)乏事(shi)實(shi)根據(ju)和(he)(he)法(fa)(fa)(fa)律依(yi)據(ju)，投(tou)(tou)訴(su)(su)(su)(su)(su)事(shi)項(xiang)不成立，并(bing)于7月26日(ri)出具《投(tou)(tou)訴(su)(su)(su)(su)(su)處理(li)決(jue)定書(shu)》，駁回了(le)(le)投(tou)(tou)訴(su)(su)(su)(su)(su)人(ren)(ren)的(de)(de)(de)(de)投(tou)(tou)訴(su)(su)(su)(su)(su)。

8月(yue)15日，B公(gong)司(si)因(yin)對(dui)政府采購(gou)監督部門《投(tou)訴(su)(su)(su)處(chu)理決定書》不服，又向某(mou)縣人(ren)民(min)法院提(ti)起行政訴(su)(su)(su)訟。10月(yue)29日，某(mou)縣人(ren)民(min)法院作出一(yi)審判決，駁回B公(gong)司(si)的訴(su)(su)(su)訟請求。此后，B公(gong)司(si)在法定上(shang)訴(su)(su)(su)期限內未再(zai)上(shang)訴(su)(su)(su)。

案例剖析

本案(an)爭議的焦點是案(an)涉(she)項(xiang)目是否(fou)屬(shu)于(yu)政府采購工程類(lei)項(xiang)目，筆者(zhe)下面從事實(shi)根(gen)據和法律依據兩個方面進行分(fen)析。

依據(ju)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)項(xiang)目(mu)的(de)(de)通常(chang)分類(lei)，建筑安(an)裝(zhuang)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)是工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)項(xiang)目(mu)的(de)(de)分支，智(zhi)能化(hua)(hua)(hua)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)又是建筑安(an)裝(zhuang)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)的(de)(de)一個子分支，因而智(zhi)能化(hua)(hua)(hua)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)歸屬于工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)類(lei)項(xiang)目(mu)。智(zhi)能化(hua)(hua)(hua)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)通常(chang)包含門禁系(xi)(xi)統(tong)(tong)、對講系(xi)(xi)統(tong)(tong)、遠程(cheng)(cheng)(cheng)(cheng)控制系(xi)(xi)統(tong)(tong)、監控系(xi)(xi)統(tong)(tong)、網絡(luo)信(xin)息服務系(xi)(xi)統(tong)(tong)、智(zhi)能照明(ming)系(xi)(xi)統(tong)(tong)、樓宇(yu)自(zi)動化(hua)(hua)(hua)系(xi)(xi)統(tong)(tong)等(deng)。根(gen)據(ju)《建筑業企業資質管理(li)規定》（住房和城鄉建設部令第(di)22號(hao)）、《注冊(ce)建造師(shi)執業管理(li)辦法(試行）》（建市(shi)〔2008〕48號(hao)）和《注冊(ce)建造師(shi)執業工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)規模標準(zhun)（試行）》（建市(shi)〔2007〕171號(hao)）等(deng)文件的(de)(de)規定，智(zhi)能化(hua)(hua)(hua)安(an)裝(zhuang)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)項(xiang)目(mu)要求(qiu)施工(gong)(gong)(gong)企業應(ying)具有(you)相應(ying)等(deng)級的(de)(de)電(dian)子與(yu)智(zhi)能化(hua)(hua)(hua)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)專業承包資質及安(an)全(quan)生(sheng)產許可(ke)證(zheng)，且項(xiang)目(mu)經理(li)（項(xiang)目(mu)負責(ze)人）應(ying)具有(you)相應(ying)等(deng)級的(de)(de)機電(dian)工(gong)(gong)(gong)程(cheng)(cheng)(cheng)(cheng)專業注冊(ce)建造師(shi)資格。

案(an)例(li)中的項目(mu)招標(biao)(biao)文件、技術(shu)規范書(shu)、工(gong)程(cheng)量清(qing)單及施(shi)工(gong)設計(ji)圖紙(zhi)等資(zi)(zi)(zi)料證(zheng)實了兩(liang)點：一是項目(mu)招標(biao)(biao)內容為(wei)某(mou)縣春風學(xue)校“智慧校園設備(bei)采購(gou)項目(mu)”，包(bao)含13個子系(xi)統及安(an)裝，如一卡通(tong)管理系(xi)統、智慧圖書(shu)館系(xi)統、校園廣播系(xi)統、多媒體會議系(xi)統、云辦公(gong)系(xi)統、電(dian)子班牌系(xi)統等。二(er)是項目(mu)招標(biao)(biao)公(gong)告中關(guan)于供應商(shang)資(zi)(zi)(zi)格(ge)要求包(bao)含“投標(biao)(biao)人(ren)應具有(you)電(dian)子與智能(neng)(neng)化(hua)工(gong)程(cheng)專(zhuan)業承包(bao)二(er)級(ji)及以上或有(you)效期內的建筑(zhu)智能(neng)(neng)化(hua)工(gong)程(cheng)設計(ji)與施(shi)工(gong)一體化(hua)二(er)級(ji)及以上資(zi)(zi)(zi)質”和“具備(bei)有(you)效期內的安(an)全(quan)生產(chan)許可證(zheng)和項目(mu)經理（項目(mu)負責人(ren)）應具有(you)機(ji)電(dian)工(gong)程(cheng)專(zhuan)業二(er)級(ji)及以上注冊建造師資(zi)(zi)(zi)質，B類安(an)全(quan)生產(chan)考核合格(ge)證(zheng)”等內容。

據此(ci)，從(cong)本項目招標所包含的內(nei)容和招標公告所要求的投標人(ren)資質及項目經理(li)資格兩(liang)方面來看(kan)，案例中的項目屬于工(gong)程－建筑安(an)裝(zhuang)(zhuang)工(gong)程－智能(neng)化(hua)安(an)裝(zhuang)(zhuang)工(gong)程，具(ju)有事實根據。

《政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)貨物(wu)和服務(wu)招標投標管(guan)理辦法》第七條(tiao)規定(ding)，“采(cai)(cai)購(gou)(gou)人(ren)(ren)應當(dang)按(an)照(zhao)財政(zheng)(zheng)部制定(ding)的《政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)品(pin)目(mu)(mu)分(fen)(fen)類目(mu)(mu)錄(lu)》確定(ding)采(cai)(cai)購(gou)(gou)項目(mu)(mu)屬(shu)性(xing)(xing)。按(an)照(zhao)《政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)品(pin)目(mu)(mu)分(fen)(fen)類目(mu)(mu)錄(lu)》無(wu)法確定(ding)的，按(an)照(zhao)有(you)利(li)于采(cai)(cai)購(gou)(gou)項目(mu)(mu)實(shi)施的原則確定(ding)。”從該規定(ding)可(ke)以看(kan)出(chu)，政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)項目(mu)(mu)屬(shu)性(xing)(xing)的認定(ding)主體是(shi)采(cai)(cai)購(gou)(gou)人(ren)(ren)，認定(ding)依據(ju)是(shi)《政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)品(pin)目(mu)(mu)分(fen)(fen)類目(mu)(mu)錄(lu)》。按(an)照(zhao)《政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)品(pin)目(mu)(mu)分(fen)(fen)類目(mu)(mu)錄(lu)》無(wu)法認定(ding)的，應按(an)照(zhao)有(you)利(li)于政(zheng)(zheng)府(fu)采(cai)(cai)購(gou)(gou)項目(mu)(mu)實(shi)施的原則進行認定(ding)。

《政(zheng)府采購(gou)品目分類(lei)目錄》將政(zheng)府采購(gou)項目分為三大類(lei)：貨物、工(gong)(gong)(gong)(gong)(gong)程(cheng)和(he)(he)(he)服務。其(qi)(qi)中，工(gong)(gong)(gong)(gong)(gong)程(cheng)類(lei)包括建(jian)筑(zhu)物施工(gong)(gong)(gong)(gong)(gong)、構筑(zhu)物施工(gong)(gong)(gong)(gong)(gong)、工(gong)(gong)(gong)(gong)(gong)程(cheng)準備(bei)、預制構件組裝(zhuang)(zhuang)(zhuang)和(he)(he)(he)裝(zhuang)(zhuang)(zhuang)配、專業(ye)施工(gong)(gong)(gong)(gong)(gong)、建(jian)筑(zhu)安(an)(an)裝(zhuang)(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)程(cheng)、裝(zhuang)(zhuang)(zhuang)修工(gong)(gong)(gong)(gong)(gong)程(cheng)、修繕(shan)工(gong)(gong)(gong)(gong)(gong)程(cheng)、工(gong)(gong)(gong)(gong)(gong)程(cheng)設(she)(she)備(bei)租賃和(he)(he)(he)其(qi)(qi)他建(jian)筑(zhu)工(gong)(gong)(gong)(gong)(gong)程(cheng)；建(jian)筑(zhu)安(an)(an)裝(zhuang)(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)程(cheng)包括電子工(gong)(gong)(gong)(gong)(gong)程(cheng)安(an)(an)裝(zhuang)(zhuang)(zhuang)、智能(neng)化安(an)(an)裝(zhuang)(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)程(cheng)、電力系(xi)統(tong)(tong)(tong)安(an)(an)裝(zhuang)(zhuang)(zhuang)、供水(shui)管道(dao)(dao)工(gong)(gong)(gong)(gong)(gong)程(cheng)和(he)(he)(he)下水(shui)道(dao)(dao)鋪設(she)(she)、供暖設(she)(she)備(bei)安(an)(an)裝(zhuang)(zhuang)(zhuang)、通(tong)風和(he)(he)(he)空調設(she)(she)備(bei)安(an)(an)裝(zhuang)(zhuang)(zhuang)、燃氣設(she)(she)備(bei)安(an)(an)裝(zhuang)(zhuang)(zhuang)、大型設(she)(she)備(bei)安(an)(an)裝(zhuang)(zhuang)(zhuang)和(he)(he)(he)其(qi)(qi)他安(an)(an)裝(zhuang)(zhuang)(zhuang)；智能(neng)化安(an)(an)裝(zhuang)(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)程(cheng)包括樓宇設(she)(she)備(bei)自控系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、保(bao)安(an)(an)監控和(he)(he)(he)防盜報警系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、智能(neng)卡系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、通(tong)信系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、衛星和(he)(he)(he)共用電視系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、計算機網(wang)絡系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、廣播系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)、火(huo)災報警系(xi)統(tong)(tong)(tong)工(gong)(gong)(gong)(gong)(gong)程(cheng)和(he)(he)(he)其(qi)(qi)他智能(neng)化安(an)(an)裝(zhuang)(zhuang)(zhuang)工(gong)(gong)(gong)(gong)(gong)程(cheng)。

根據(ju)《政府(fu)采(cai)購(gou)法》第(di)四條(tiao)(tiao)和《政府(fu)采(cai)購(gou)法實(shi)(shi)施條(tiao)(tiao)例(li)(li)》第(di)七條(tiao)(tiao)的(de)規定(ding)，政府(fu)采(cai)購(gou)工(gong)程(cheng)項目(mu)以(yi)及與(yu)工(gong)程(cheng)項目(mu)有關(guan)的(de)貨(huo)物(wu)、服務，采(cai)用(yong)(yong)招(zhao)標(biao)方式(shi)（公開招(zhao)標(biao)、邀(yao)請招(zhao)標(biao)），適用(yong)(yong)《招(zhao)標(biao)投標(biao)法》及其實(shi)(shi)施條(tiao)(tiao)例(li)(li)；采(cai)用(yong)(yong)非招(zhao)標(biao)方式(shi)采(cai)購(gou)的(de)，適用(yong)(yong)《政府(fu)采(cai)購(gou)法》及其實(shi)(shi)施條(tiao)(tiao)例(li)(li)。

據(ju)此(ci)，采(cai)購(gou)人根(gen)據(ju)該項(xiang)目的招標內容(rong)，依據(ju)《政府采(cai)購(gou)品目分類目錄》認(ren)定(ding)本項(xiang)目的屬性為工(gong)程－建(jian)筑安(an)(an)裝工(gong)程－智能化安(an)(an)裝工(gong)程具有法律依據(ju)。

通過上文(wen)對事(shi)實根(gen)(gen)據(ju)和(he)法(fa)律(lv)依據(ju)的(de)分析，可以得出如(ru)下結論：采購人根(gen)(gen)據(ju)案例項目(mu)工(gong)程類的(de)屬(shu)性編制(zhi)招標文(wen)件，并在招標文(wen)件中規(gui)定評(ping)標委員(yuan)會(hui)(hui)組成人數為5人，價格分采用“取不低于平均價80%有(you)效投(tou)標人報價的(de)平均價作為評(ping)標基準價”，符(fu)合《招標投(tou)標法(fa)》及其(qi)實施條例等(deng)法(fa)律(lv)法(fa)規(gui)關(guan)于評(ping)標委員(yuan)會(hui)(hui)組成和(he)價格分計算方(fang)式(shi)的(de)規(gui)定，并未違反政府采購法(fa)律(lv)法(fa)規(gui)強制(zhi)性規(gui)定。

案例啟示

案例(li)中(zhong)的(de)(de)(de)(de)項(xiang)(xiang)目(mu)(mu)屬于工程(cheng)(cheng)建(jian)設(she)(she)項(xiang)(xiang)目(mu)(mu)并采(cai)用(yong)了公(gong)開招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)方式(shi)，依據相關規(gui)定，其適用(yong)《招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)法》及其實施條例(li)，因而(er)應采(cai)用(yong)工程(cheng)(cheng)建(jian)設(she)(she)項(xiang)(xiang)目(mu)(mu)的(de)(de)(de)(de)招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)采(cai)購流程(cheng)(cheng)，項(xiang)(xiang)目(mu)(mu)的(de)(de)(de)(de)立項(xiang)(xiang)、招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)公(gong)告(gao)的(de)(de)(de)(de)發(fa)布、投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)人資(zi)格的(de)(de)(de)(de)要求、招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)文件的(de)(de)(de)(de)編制、評標(biao)(biao)(biao)(biao)(biao)(biao)辦(ban)法的(de)(de)(de)(de)設(she)(she)定、招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)過程(cheng)(cheng)的(de)(de)(de)(de)監督、中(zhong)標(biao)(biao)(biao)(biao)(biao)(biao)候選(xuan)人的(de)(de)(de)(de)公(gong)示、異議和(he)(he)投(tou)訴的(de)(de)(de)(de)處理等均(jun)應遵守(shou)《國務院辦(ban)公(gong)廳關于推進公(gong)共(gong)資(zi)源配(pei)置領(ling)域政(zheng)府信息公(gong)開的(de)(de)(de)(de)意見(jian)》（國辦(ban)發(fa)〔2017〕97號）、《工程(cheng)(cheng)建(jian)設(she)(she)項(xiang)(xiang)目(mu)(mu)施工招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)辦(ban)法》（國家(jia)發(fa)改委等七部(bu)委令(ling)(ling)第(di)30號）和(he)(he)《工程(cheng)(cheng)建(jian)設(she)(she)項(xiang)(xiang)目(mu)(mu)招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)活動投(tou)訴處理辦(ban)法》（國家(jia)發(fa)改委等七部(bu)委令(ling)(ling)第(di)11號）等工程(cheng)(cheng)建(jian)設(she)(she)項(xiang)(xiang)目(mu)(mu)招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投(tou)標(biao)(biao)(biao)(biao)(biao)(biao)的(de)(de)(de)(de)相關規(gui)定。

通過梳理(li)發現，案例中項目(mu)(mu)的(de)(de)(de)招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)文件規(gui)定(ding)的(de)(de)(de)實(shi)質性內容雖然符合《招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投標(biao)(biao)(biao)(biao)(biao)(biao)法(fa)》及其(qi)實(shi)施(shi)條例等(deng)相關(guan)規(gui)定(ding)，但是招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)采(cai)(cai)(cai)購(gou)(gou)流程(cheng)卻直接套用了《政府采(cai)(cai)(cai)購(gou)(gou)貨物和服(fu)務(wu)招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投標(biao)(biao)(biao)(biao)(biao)(biao)管理(li)辦法(fa)》的(de)(de)(de)規(gui)定(ding)，與上(shang)述工(gong)程(cheng)建設(she)(she)項目(mu)(mu)招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)投標(biao)(biao)(biao)(biao)(biao)(biao)的(de)(de)(de)具體(ti)規(gui)定(ding)存(cun)在沖突，招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)采(cai)(cai)(cai)購(gou)(gou)流程(cheng)上(shang)存(cun)在瑕(xia)疵(ci)。這也(ye)提醒行業(ye)從業(ye)人員在政府采(cai)(cai)(cai)購(gou)(gou)操作(zuo)實(shi)務(wu)中要特別注意不同(tong)屬性和采(cai)(cai)(cai)購(gou)(gou)方(fang)式(shi)的(de)(de)(de)項目(mu)(mu)適用法(fa)律法(fa)規(gui)和辦理(li)流程(cheng)不盡相同(tong)，如招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)方(fang)式(shi)和非招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)方(fang)式(shi)的(de)(de)(de)工(gong)程(cheng)建設(she)(she)項目(mu)(mu)不相同(tong)，招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)方(fang)式(shi)和非招(zhao)(zhao)(zhao)標(biao)(biao)(biao)(biao)(biao)(biao)方(fang)式(shi)的(de)(de)(de)貨物和服(fu)務(wu)也(ye)不相同(tong)。

古(gu)人(ren)云，“規(gui)外(wai)求(qiu)圓，無(wu)圓矣；法(fa)外(wai)求(qiu)平，無(wu)平矣。”界定(ding)政府采購項目屬性必(bi)(bi)須要(yao)堅持合法(fa)、合理原(yuan)則，減(jian)少(shao)不必(bi)(bi)要(yao)的質疑和投訴，進而提高項目實施效率。

所謂合法(fa)(fa)原則，首先要(yao)依據《政(zheng)府(fu)(fu)采(cai)購(gou)(gou)法(fa)(fa)》及(ji)其(qi)實施條例、《招(zhao)標(biao)(biao)投(tou)標(biao)(biao)法(fa)(fa)》及(ji)其(qi)實施條例進(jin)行(xing)界定(ding)。其(qi)次要(yao)依據政(zheng)府(fu)(fu)采(cai)購(gou)(gou)主(zhu)管(guan)部門規章的細化(hua)規定(ding)進(jin)行(xing)界定(ding)。如《政(zheng)府(fu)(fu)采(cai)購(gou)(gou)貨物(wu)和服(fu)務招(zhao)標(biao)(biao)投(tou)標(biao)(biao)管(guan)理(li)辦法(fa)(fa)》《政(zheng)府(fu)(fu)采(cai)購(gou)(gou)非招(zhao)標(biao)(biao)采(cai)購(gou)(gou)方式管(guan)理(li)辦法(fa)(fa)》和《政(zheng)府(fu)(fu)采(cai)購(gou)(gou)品(pin)(pin)目(mu)(mu)分(fen)類目(mu)(mu)錄(lu)》等。特別是《政(zheng)府(fu)(fu)采(cai)購(gou)(gou)品(pin)(pin)目(mu)(mu)分(fen)類目(mu)(mu)錄(lu)》對政(zheng)府(fu)(fu)采(cai)購(gou)(gou)貨物(wu)、工程、服(fu)務進(jin)行(xing)了詳細分(fen)類，絕大(da)部分(fen)政(zheng)府(fu)(fu)采(cai)購(gou)(gou)項目(mu)(mu)的屬性(xing)都可據此界定(ding)。

所謂(wei)合理原(yuan)(yuan)則(ze)，是(shi)依據法律法規(gui)規(gui)章(zhang)及《政(zheng)府(fu)采(cai)購(gou)(gou)(gou)(gou)品(pin)目(mu)分(fen)類(lei)目(mu)錄》仍無法界(jie)定時應(ying)遵循的原(yuan)(yuan)則(ze)，主要是(shi)指(zhi)“有(you)利于(yu)采(cai)購(gou)(gou)(gou)(gou)項(xiang)目(mu)”的原(yuan)(yuan)則(ze)。該(gai)原(yuan)(yuan)則(ze)的本(ben)質(zhi)是(shi)還(huan)權于(yu)采(cai)購(gou)(gou)(gou)(gou)人，但采(cai)購(gou)(gou)(gou)(gou)人不能任(ren)性行使此(ci)項(xiang)權利，特別是(shi)在項(xiang)目(mu)本(ben)身包含(han)工(gong)(gong)程、貨(huo)(huo)物(wu)(wu)或服務中兩種(zhong)以上屬(shu)(shu)性的內容(rong)的情形(xing)下，采(cai)購(gou)(gou)(gou)(gou)人要認真分(fen)析、綜合研判(pan)，不能孤立地(di)、教條地(di)界(jie)定項(xiang)目(mu)的屬(shu)(shu)性，否(fou)則(ze)將不利于(yu)采(cai)購(gou)(gou)(gou)(gou)項(xiang)目(mu)的有(you)效實施(shi)。也(ye)就(jiu)是(shi)說，采(cai)購(gou)(gou)(gou)(gou)人既要考慮工(gong)(gong)程、貨(huo)(huo)物(wu)(wu)和服務內容(rong)之(zhi)間的關聯性，也(ye)要考慮工(gong)(gong)程、貨(huo)(huo)物(wu)(wu)和服務內容(rong)本(ben)身的擴張(zhang)性，只有(you)兩者皆顧(gu)，才(cai)能切(qie)實做(zuo)好(hao)政(zheng)府(fu)采(cai)購(gou)(gou)(gou)(gou)相關工(gong)(gong)作。

 作(zuo)者(zhe)：儲成(cheng)鵬

 作者單位：安徽(hui)省六安市公共資源交易(yi)監督管理局

來源：《招標采購(gou)管理(li)》