Notice of the Ministry of Finance on Matters Regarding Strengthening the Administration of Government Procurement of Central Budget Entities

财政部关于加强中央预算单位政府采购管理有关事项的通知

Promulgating Institution: Ministry of Finance

Document Number: Cai Ku [2012] No.49

Promulgating Date: 05/08/2012

Effective Date: 05/08/2012

颁布机关: 财政部

文      号: 财库[2012]49号

颁布时间: 05/08/2012

实施时间: 05/08/2012

To relevant departments of the Party Central Committee, all ministries and commissions under and all institutions directly under the State Council, the General Office of the Standing Committee of the National People’s Congress, the General Office of the CPPCC National Committee, the Supreme People’s Court, the Supreme People’s Procuratorate, relevant mass organizations, Xinjiang Production and Construction Corps, the Procurement Center of the Central Government Institution, the Procurement Center of Organs Directly under the CPC Central Committee, the Procurement Center of Organs of the National People’s Congress, the Centralized Procurement Center of the People’s Bank of China, the Centralized Procurement Center of the State Administration of Taxation and the Material and Equipment Procurement Center of the General Administration of Customs:

In recent years, all central entities have earnestly implemented the Government Procurement Law of the People’s Republic of China and relevant systems and regulations, and have achieved remarkable effects in such aspects as standardizing government procurement behavior, increasing the efficient use of financial funds and implementing the function of government procurement policies. However, there are still some problems, such as refusing to prepare government procurement budgets, procurement exceeding the budget or above standards, evasion of centralized procurement and failing to strictly perform procurement procedures. With a view to implementing the guiding principles of the Notice of the General Office of the CPC Central Committee and the General Office of the State Council on Furthering the Economization of Party and Government Organs, further standardizing the government procurement behavior of central entities and giving full play to the function in government procurement, we hereby issue a notice as follows on matters regarding the administration of government procurement of central entities:

    党中央有关部门,国务院各部委、各直属机构,全国人大常委会办公厅,全国政协办公厅,高法院,高检院,有关人民团体,新疆生产建设兵团,中央国家机关政府采购中心,中共中央直属机关采购中心,全国人大机关采购中心,中国人民银行集中采购中心,国家税务总局集中采购中心,海关总署物资装备采购中心:

    近年来,各中央单位认真贯彻执行《中华人民共和国政府采购法》及相关制度规定,在规范政府采购行为、提高财政资金使用效益、落实政府采购政策功能等方面取得了明显成效。但一些单位不编政府采购预算、超预算超标准采购、规避集中采购以及不严格执行采购程序等问题仍然存在。为贯彻落实中共中央办公厅、国务院办公厅关于进一步做好党政机关厉行节约工作的通知精神,进一步规范中央单位政府采购行为,充分发挥政府采购功能作用,现就加强中央单位政府采购管理的有关事项通知如下:

1. Strengthening and improving the administration of government procurement budgets

Central entities shall comprehensively prepare government procurement budgets and further refine departmental budgets. For all procurement items within the scope of the Catalogue and Standards of Centralized Government Procurement of Central Entities (hereinafter referred to as the "Catalogue and Standards of Centralized Procurement") promulgated by the State Council and projects above procurement quotas, the amount of government procurement of goods, projects and services shall be specified in departmental budgets in accordance with requirements of budget preparation documents. Government procurement budgets for general office equipment and furniture shall be prepared in accordance with the Notice of the Ministry of Finance on Printing and Distributing the Standards of Purchase Budgets of Central Administrative Entities for General Office Equipment and Furniture (Trial) (Cai Xing [2011] No. 78), and government procurement budgets for other projects shall be prepared under the principle of economization and based on results of historical transaction of similar projects.

Central entities shall conduct government procurement in strict accordance with departmental budgets approved by the Ministry of Finance, and any adjustments to annual government procurement budgets in progress shall be submitted to the Ministry for examination and approval in accordance with prescribed procedures. While applying to the Ministry of Finance for changing items including government procurement methods of subordinate entities and imported products involved in procurement, competent departments must provide relevant budget approval documents. Where government procurement methods need to be changed, or imported products need to be procured prior to the issuance of departmental budgets at the beginning of the year, competent departments shall file written applications with the Department of Exchequer of the Ministry of Finance, and the department shall handle it in accordance with the implementation of budget funds examined and approved by the Department of Budget of the Ministry of Finance. For procurement projects in different years under medium and long-term budget items whose budget estimates have been approved by the Department of Budget of the Ministry of Finance, the Department of Exchequer may handle such projects as the same procurement project while handling applications for changing government procurement methods or examining imported products.

       一、加强和改进政府采购预算管理

    中央单位要全面编制政府采购预算,大力推进部门预算细化工作。凡纳入国务院公布的《中央单位政府集中采购目录及标准》(以下简称《集中采购目录及标准》)范围内的集中采购品目和采购限额标准以上项目,都应当按照预算编制文件要求,在部门预算中列明货物、工程和服务的政府采购金额。通用办公设备家具的政府采购预算要根据《财政部关于印发〈中央行政单位通用办公设备家具购置费预算标准(试行)〉的通知》(财行[2011]78号)规定编制,其他项目的政府采购预算要根据厉行节约的原则并结合同类项目历史成交结果编制。

    中央单位应当严格按照财政部批复的部门预算开展政府采购活动,年度执行中的政府采购预算调整要按规定程序报财政部审核批复。主管部门向财政部申请变更所属单位政府采购方式和采购进口产品等事项时,必须提供相关预算批复文件。对于年初部门预算下达前需要变更政府采购方式和采购进口产品的,由主管部门向财政部国库司提出书面申请,国库司根据财政部部门司审核同意的预算资金落实情况进行办理。对于已经财政部部门司核准概算的中长期预算项目下不同年度的采购项目,国库司在办理政府采购方式变更、进口产品审核时可按同一采购项目处理。

2. Intensifying the administration of government procurement plans

Central entities must formulate government procurement plans in accordance with government procurement budgets prior to conducting government procurement. For all government procurements conducted with financial funds and supporting funds, procurement plans shall be formulated and refined to government procurement projects and items. For procurement of items within the scope of bulk centralized procurement including office equipment and office supplies, bulk procurement plans shall be formulated in accordance with the requirements of the Notice on Further Advancing Pilot Bulk Centralized Procurement of Central Entities (Cai Ban Ku [2011] No. 87).

Central entities shall strengthen the administration of internal demands and intensify the examination of standards for purchase budgets in government procurement plan administration. Government procurement projects for which standards for purchase budgets have not been formulated shall be examined based on actual work demands and results of historical transactions, and central entities are forbidden to be equipped with high-grade and high-configuration products obviously exceeding the basic work demands. For items within the scope of bulk centralized procurement, procurement demands shall, in principle, be determined in accordance with configuration references formulated by the Ministry of Finance. For procurement projects which are intended to meet special demands and whose budget amount exceeds the amount prescribed by the Ministry of Finance, special configuration standards of such procurement projects may be determined upon approval by competent departments, but shall not exceed the standards for purchase budgets. Central entities are forbidden to exceed budget standards on the grounds of special purposes or evade bulk centralized procurement.

       二、强化政府采购计划管理

    中央单位在开展政府采购活动前必须按照政府采购预算编制政府采购计划,所有使用财政性资金及配套资金开展的政府采购活动,均要编制采购计划并细化到政府采购项目和品目。对于纳入批量集中采购范围的办公设备、办公用品等品目采购,要按照《关于进一步推进中央单位批量集中采购试点工作的通知》(财办库[2011]87号)要求编制批量采购计划。

    中央单位要加强内部需求管理,强化政府采购计划管理中的购置费预算标准审核,对于尚无购置费预算标准的政府采购项目,要结合工作实际需要及历史成交结果进行审核,严禁配备明显超出机关办公基本需求的高档、高配置产品。对于纳入批量集中采购范围的品目,原则上应当根据财政部制定的配置参考确定采购需求,确因特殊需要且预算金额在财政部规定金额以上的采购项目,可以经主管部门同意后确定本次采购项目的特殊配置标准。但不得突破购置费预算标准,不得以特殊用途为由超出预算标准和规避批量集中采购。

3. Strictly implementing the provisions on centralized government procurement

Central entities shall strictly implement the Catalogue and Standards of Centralized Procurement. Any procurement items of centralized procurement institutions included in the Catalogue and Standards of Centralized Procurement shall be procured by centralized procurement institutions on a commission basis. Where centralized procurement items of departments include items that shall be procured by centralized procurement institutions, such items shall also be procured by centralized procurement institutions on a commission basis. Where procurement items of centralized procurement institutions meet standards for open bidding, central entities shall commission centralized procurement institutions to invite bids of such items. Central entities are forbidden to evade open biddings through supply by agreement or in any other way.

For items procurement within the scope of bulk centralized procurement, competent departments shall establish the mechanism of internal audit, strictly control quantities of procurement by agreement, and ensure the quantities of procurement of their departments (including subordinate entities, the same below) by agreement in the current year do not exceed prescribed proportions.

       三、严格执行政府集中采购规定

    中央单位应当严格执行《集中采购目录及标准》,凡纳入《集中采购目录及标准》中的集中采购机构采购品目,应当委托集中采购机构采购,部门集中采购品目中包含集中采购机构采购品目的,也应当委托集中采购机构采购。集中采购机构采购品目达到公开招标限额标准的,中央单位应当委托集中采购机构进行公开招标,严禁通过协议供货或者其他方式化整为零规避公开招标。

    对于已纳入批量集中采购范围的品目采购,主管部门要建立内部审核机制,严格控制通过协议供货方式采购的数量,确保本部门(含所属单位,下同)本年度通过协议供货采购的数量不超过规定比例。

4. Standardizing government procurement procedures and behavior

Central entities shall organize government procurement biddings in strict accordance with the Government Procurement Law, the Administrative Measures for Biddings for Goods and Services Involved in Government Procurement (Decree of the Ministry of Finance No. 18) and other relevant systems and regulations. Procurement projects meeting the conditions of competitive bidding must be subject to public biddings in accordance with prescribed procedures. For the same government procurement projects within the same budget year, the same items or same types of goods and services shall not be spilt, and shall not be procured in the way of closed bidding. Where some central entities are capable of independently organizing procurement biddings, they shall file applications with competent departments for approval. It is forbidden to list discriminatory clauses in bidding documents, or to raise qualification and performance requirements unrelated to procurement projects or excessive requirements, and representatives of purchasers involved in bid evaluation shall not direct or intervene in bid evaluation.

Central entities shall strictly implement the system of examination and approval of government procurement methods. The Ministry of Finance shall not pay for projects whose procurement methods are changed without approval. Competent departments shall strictly control single source procurement, strengthen expert argumentation administration and prevent the method of single source procurement from being abused. Where single source procurement is needed, theNotice of the Ministry of Finance on Issues concerning Pre-examination Publicity of Applications of Central Entities for Single Source Procurement (Cai Ku [2011] No. 130) shall apply.

Central entities shall strengthen contract performance administration, ensure procurement entities, acceptance entities and entities using projects to be separated, and be forbidden o be engaged in postponing or rejecting acceptance and failing to make payments in accordance with the provisions on treasury centralized payment.

       四、规范政府采购程序和行为

    中央单位要严格按照政府采购法和《政府采购货物服务招标投标管理办法》(财政部令第18号)及其他相关制度规定组织政府采购招标活动。符合公开招标的采购项目必须按规定程序进行招标,对于同一预算年度内的同一政府采购项目,不得对其相同品目或者相同类别的货物和服务进行拆分,以非公开招标方式进行采购。对个别中央单位有能力自行组织招标采购的,必须报经主管部门批准。严禁在招标文件中列示歧视性条款,不得提出与采购项目无关或过高的资质和业绩要求,参与评标的采购人代表不得引导或干预评标。

    中央单位要严格执行政府采购方式审批制度,对未经批准擅自变更采购方式的项目,财政部将不予支付资金。主管部门要严格控制单一来源采购,加强专家论证管理,防止滥用单一来源采购方式。对确需采用单一来源方式采购的,应当按照《财政部关于对中央单位申请单一来源采购实行审核前公示相关问题的通知》(财库[2011]130号)的规定执行。

    中央单位要加强合同履约管理,做到采购、验收和项目使用单位相分离,严禁出现无故拖延和拒绝验收、不按国库集中支付规定支付资金等行为。

5. Further implementing the function of government procurement policies

Central entities shall continue to take the lead to implement government procurement policies including government procurement intended to support energy conservation and environmental protection, genuine software procurement and homemade product procurement. For biddings of procurement projects involving energy-conserving products and products with environment labels, measures of preferential procurement and compulsory procurement, and relevant requirements for products involved in biddings shall be specified in procurement documents. Provisions on administration of imported products involved in government procurement shall be implemented strictly, and imported products for which domestic industries have been mature shall not be procured in principle. Departments that procure large quantities of imported products shall establish the expert review system, to strictly examine their subordinate entities’ applications for procuring imported products.

Central entities shall, in accordance with the requirements of the Regulations on Implementation of the Bidding and Bid Law of the People’s Republic of China, strictly implement government procurement policies for environmental protection, promoting the development of small and medium-sized enterprises and procuring homemade products, for biddings of construction projects.

Competent departments shall, in strict accordance with the Notice of the Ministry of Financeand the Ministry of Industry and Information Technology on Printing and Distributing the Interim Administrative Measures for Promotion of Development of Small and Medium-sized Enterprises by Government Procurement (Cai Ku [2011] No. 181), make overall arrangements for promotion of development of small and medium-sized enterprises by government procurement at their departments, ensure the implementation of policy measures such as procurement share reserving and review preference, for procurement projects targeting small and medium-sized enterprises, and make public the implementation of procurement projects targeting small and medium-size enterprises on government procurement release media designated by the Ministry of Finance.

       五、进一步落实政府采购政策功能

    中央单位要继续带头实施政府采购支持节能环保、采购正版软件以及采购本国产品等政府采购政策。对涉及节能产品和环境标志产品的招标采购项目,要在采购文件中明确优先采购和强制采购的措施,载明对投标产品的相关要求。要严格执行政府采购进口产品管理规定,原则上国内产业已经成熟的产品不得采购进口产品。采购进口产品数量较多的部门,应建立本部门的专家复核制度,对所属单位申请采购进口产品的项目严格把关。

    中央单位要根据《中华人民共和国招标投标法实施条例》要求,对实行招标投标的工程建设项目,也要严格执行保护环境、促进中小企业发展以及采购本国产品等政府采购政策。

    主管部门要严格按照《财政部工业和信息化部关于印发政府采购促进中小企业发展暂行管理办法的通知》(财库[2011]181号)的规定,统筹安排本部门政府采购促进中小企业发展的各项工作,确保面向中小企业采购的预留采购份额、评审优惠等政策措施的落实,并在财政部指定的政府采购发布媒体公开面向中小企业采购的项目执行情况。

6. Practically performing the responsibilities of government procurement administration and supervision

Competent departments shall intensify the administration of their government procurement, define the entities responsible for government procurement administration, establish and improve internal management systems, intensify the informatization construction of internal government procurement, and intensify the execution and administration of work including government procurement budgeting, plan declaration, bulk centralized procurement and implementation of policy functions; and shall urge subordinate entities to strictly implement results of government procurement biddings including bulk centralized procurement, duly sign procurement contracts and punctually accept procured products.

The Ministry of Finance shall strengthen the supervision and inspection of the government procurement work of central entities, perfect the mechanism of collaborating with audit and supervisory departments, conduct regular inspection and special inspection on government procurement (including government procurement for construction projects) budget implementation and policy implementation, progressively establish a supervision and inspection mechanism integrating daily inspection with focused random inspection and severely deal with problems found in supervision and inspection.

Ministry of Finance

May 8, 2012

       六、切实履行政府采购管理监督责任

    主管部门要加大对本部门政府采购工作的管理力度，明确本部门政府采购管理的责任单位，建立健全内部管理制度，加强部门内部政府采购信息化建设，强化对政府采购预算编制、计划申报、批量集中采购以及政策功能实施等工作的执行和管理。要督促所属单位严格执行批量集中采购等政府采购招标结果，及时签订采购合同并按时验收采购产品。

    财政部将加强对中央单位政府采购工作的监督检查，完善与审计、监察部门的协作配合机制，开展对政府采购（含政府采购工程建设项目）预算执行情况、政策执行情况的定期检查和专项检查工作，逐步建立日常检查和重点抽查相结合的监督检查机制，并针对监督检查出的问题进行严肃处理。

    财政部

    二○一二年五月八日