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    浙江政府采購網 > 采購知識 > 理論實務 > 淺談對財庫便函〔2019〕154號文件的題外話

    淺談對財庫便函〔2019〕154號文件的題外話

    來源:政府采購信息網 發布時間:2019-04-01 瀏覽次數:

    作者:劉躍華


    日前,財政部國庫司在給哈爾濱市財政局《關于采購人是否有權順延確定中標或成交供應商等問題的函》回函中,涉及到幾個層面的課題,一是政府采購環節中出現的供應商拒絕與采購人簽訂合同的處置問題;二是合同簽訂后供應商交付的標的物不合格如何的處置問題。上述兩個問題看似很簡單,但卻在政府采購的實踐中經常遇到,筆者以為有必要加以認真分析方能弄清有關政策的真正用意,對于提高處理類似問題能力很有幫助。


    拒簽合同屬于政府采購法管轄范圍


    一方面,基于法律的規定。《政府采購法》第四十三條規定:“政府采購合同適用合同法。采購人和供應商之間的權利和義務,應當按照平等、自愿的原則以合同方式約定”。這也就說明在簽訂合同之前的所有環節均屬于《政府采購法》范疇,而簽訂合同之后則只能聽從我國《合同法》的安排。另一方面,縱觀政府采購從制訂采購計劃(預算)、編制采購文件、發布采購信息到投標、評標、公布采購結果、依法簽訂合同等,包括其中可能出現的質疑、投訴等情況,在政府采購的法律法規中都可以找得到相關的法律依據。對于簽訂合同的具體內容(即《合同法》規定的合同一般條款),《政府采購法》及其相關法律法規并沒有再作出另外的規定,這是因為《政府采購法》第四十三條的規定已經明確毋須再搞一套。再則,《合同法》屬于民商法領域即當事人之間以設計定、變更或消滅債的關系為目的雙方民事法律行為的實體法,對于僅限于各級國家機關、事業單位和團體組織,使用財政性資金采購依法制定的集中采購目錄以內的或者采購限額標準以上的貨物、工程和服務的與供應商發生的民事債務關系的單一性質行為的實體程序法--《政府采購法》而言當然具有毋庸置疑的統領地位。因此,在當事人雙方沒有簽訂合同之前的行為均必須依從政府采購的法律法規的規范要求行事。正是因為簽訂合同之前屬于《政府采購法》及其相關法律法規管轄范圍,對于當事人簽訂合同的行為要求,《政府采購法》第四十六條規定:“采購人與中標、成交供應商應當在中標、成交通知書發出之日起三十日內,按照采購文件確定的事項簽訂政府采購合同。中標、成交通知書對采購人和中標、成交供應商均具有法律效力。中標、成交通知書發出后,采購人改變中標、成交結果的,或者中標、成交供應商放棄中標、成交項目的,應當依法承擔法律責任”。


    供應商拒絕簽訂合同的四種情況


    《政府采購法實施條例》第四十九條對中標或成交供應商拒絕與采購人簽訂合同的情況作出了進一步的規范:“中標或者成交供應商拒絕與采購人簽訂合同的,采購人可以按照評審報告推薦的中標或者成交候選人名單排序,確定下一候選人為中標或者成交供應商,也可以重新開展政府采購活動。”作為政府采購業內人士,應該明白中標或成交供應商拒絕簽訂合同基于以下四種情況:其一是市場行情發生變化,如原材料價格上漲,廠家出廠價提高,或者中標或成交供應商對項目采購文件、項目實施條件的理解有偏差,或者其投標、響應出現失誤,如果勉強簽訂合同號則無利可圖甚至要賠本生意,所以拒絕簽訂合同;其二是中標或成交供應商受到脅迫,不得已地放棄簽訂合同,如采購人對中標成交供應商不滿意,采購人利用自身的權勢或者以簽訂合同后不予配合為威脅,迫使中標或成交供應商放棄簽訂合同;其三是中標或成交供應商與采購人、采購代理機構串通(圍標),讓報價更高或者采購人傾向的供應商遞補而主動放棄簽訂合同;其四是因發生不可抗力,如地震、海嘯、瘟疫、水災、騷亂、暴動、戰爭等不以人的意志為轉移的不能預見、不能避免的不可抗力的發生,只能忍痛放棄簽訂合同。筆者以為對于上述第一種情況應該依照招標文件的約定進行適當處理即可,對于第二、第三兩種情況應該在查明事實的前提下應當將當事人移交司法部門處理,因為這已經觸犯了國家法律,對于第四情況,則中標或成交供應商不應承擔任何責任,因為發生不抗力是受法律保護的。


    驗收和履約屬于《合同法》管轄范圍


    一方面,驗收的主要內容已經在合同中約定的。我國《合同法》對于合同的條款的規定則是為驗收提供依據,如當事人的名稱或者姓名和住所、標的、數量、質量、價款或者報酬、履行期限、地點和方式、違約責任、解決爭議的方法等,這些內容在驗收時需要一一對號入座“檢查到位”,否則驗收無法進行。《政府采購法實施條例》第四十五條對驗收作的要求并未突破“按合同規定”這個前提。如果在驗收中發現供應商履約存在瑕疵,采購人應當按照合同約定追究供應商的違約責任,情節嚴重的應當報同級財政部門依法處理。對于供應商違約的問題,采購人不要“耳根子軟”,聽不得供應商講幾句好話就放棄對其的違約責任追究,應該看到,供應商的違約行為,不論損失大小,都將給政府采購抹黑,使國家和人民的利益受到不法侵害,而且助長了供應商的囂張氣焰,敗壞了政府采購的正常秩序,因此,決不能心慈手軟,姑息養奸。另一方面,供應商不履約的情況發生后,由于政府采購從發標到簽訂合同,政府采購的采購程序已經全部走完,該項目不可能再逆襲到政府采購程序中來,也就是說不能按照《政府采購法實施條例》第四十九條的規定,由采購人選擇下一候選人為中標或成交對象。出現這種情況,采購人除了追究供應商的違約責任外,對于項目只能走重新組織采購的路子。還有一種情況,就是簽訂合同后供應商出現履約延遲的情況,有時并不是供應商的問題,而是對方當事人的責任。筆者曾經遇到過一個個案,一家軟件供應商成交了一個高校的信息平臺,由于該項目是在原有平臺的基礎上進行二次開發,原來的開發商因為項目沒有做完并沒有撤退,采購人匆匆招二期開發,新成交的供應商簽訂合同后卻進不了場,沒辦法履約,急得成交供應商到處告采購人的狀,最后由監管機構、代理機構出面協調,讓采購人騰出一片空間給成交供應商履約才算完事。

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