“直接控股、管理关系”的认定研究——对《政府采购法实施条例》第十八条第一款的理解

Research on The Identification of “Direct Holding and Management Relationship”——Understanding of Paragraph 1 of Article 18 of Regulations on the Implementation of the Government Procurement Law

对《政府采购法实施条例》第十八条第一款中的“直接控股、管理关系”,司法实践和政府采购实务部门一直存在不同理解。探寻司法裁判和政府采购实务部门的观点,并结合理论研究进行探讨,有助于廓清规范内涵、提高条文适用的准确性。首先,“直接控股关系”可延续股权比例加表决权影响的判断标准,“直接管理关系”需考查双方间计划、组织、协调、指导等行为方式,辅之其他证据资料,秉承“实质大于形式”的原则审慎判断。其次,应当将“控股、管理关系”严格限制在“直接”范围内。最后,无论是股权交叉抑或人事混同,原则上均不是判断“直接控股、管理关系”的直接依据。

There have always been different understandings of the“direct holding and management relationship”in paragraph 1 of article 18 of the Regulations for the Implementation of the Government Procurement Law between judicial practice and government procurement practice departments.Exploring the views of judicial adjudication and government procurement practice departments,and discussing them in combination with theoretical research,is helpful to clarify the connotation of the norm and improve the accuracy of the application of provisions.First of all,the“direct holding relationship”can continue the judgment criteria for the impact of the equity ratio plus voting rights,and the“direct management relationship”needs to examine the planning,organization,coordination,guidance and other behavior methods between the two parties,supplemented by other evidence materials,and prudently judge according to the principle of“substance is greater than form”.Second,the“holding and management relationship”should be strictly limited to the scope of“direct”;Finally,in principle,neither equity cross-cutting nor personnel mixing is the direct basis for judging the“direct holding and management relationship”.