公共采购合同管理研究:美国的经验与启示

Research on Contract Management Institutions in Public Procurement:Experiences and Enlightenment from the USA

公共采购合同管理是公共采购的重要组成部分,但中国有关法律没有规定完整的合同管理制度。虽有一些合同备案和违法或不诚信行为记录公告等要求,但总体上看中国公共采购法的合同管理制度存在突出问题,比如在监管责任方面,采购人内部管理和外部行政监督法定责任的共同缺失;在管理内容方面,合同变更、终止和分包等制度缺乏可操作性;在管理手段方面,含混的合同备案和仅仅注重结果的诚信信息管理不能满足公共采购的需要;在管理人员方面,非专业化的管理队伍无法适应合同管理的需要;在合同争议解决方面,缺乏合同争议解决的行政处理制度。而美国政府采购有关制度相对完善,对中国有重要的借鉴意义。笔者在借鉴美国《联邦采购条例》的基础上,指出中国公共采购法应当树立公共采购合同必须管理的理念,建立以合同官制度为核心的采购人内部管控体系并法律化,在完善合同管理制度过程中要坚持权力法定和平等协商的融合。

Contract management is an essential part of the public procurement process. However,there are no contract full management institutions in Chinese laws. Despite of the requirement such as filing contracts with supervision departments over government procurement at the same level or announcements and records of illegal or dishonest behaviors,serious problems still exist in contract management system of public procurement laws,e. g. absence of regulatory responsibilities,legal responsibilities both in procurement agencies＇ inner management mechanism and external administrative supervision. In addition,content of contract management,institutions of contract modifications,termination and subcontracting lack maneuverability. Management means is not sufficient by simply filing contract copies to meet the needs of public procurement. Unprofessional management staff fail to perform the tasks of contract management. There are not administrative resolution institutions regarding contract dispute settlement. ＂Federal Acquisition Regulation＂（ FAR） has built a relatively complete system. China＇s public procurement laws should build up the idea that public procurement contracts must be managed. A contract management system should be established with contract officers at the core,adhering to the legitimation of administrative authority and equal negotiation in the aspect of contract management system institutions.