公路工程招投标常见问题的分析(精).doc

公路工程招投标常见问题的分析摘要:招投标是市场经济中的 种竞争方式, 是在双方同意的基础上的 一种交易 行为, 其特点是由招标人通过事先公布的采购条件和要求, 众多投标人在同等条 件下进行竞争, 招标人按照规定的程序从中选择优胜者。 本文对公路招投标存在 的问题进行了分析。关键词:公路工程;工程招投标;问题分析随着我国经济的快速发展,公路工程建设也有了长足的发展,而作为全社会 基础设施的公路建设投资, 在我国现阶段更是承担着拉动需求、 带动地方经济发 展的重要作用。 近几年来, 我省每年用于公路建设的投资都在五六百亿以上, 如 何管理好这笔巨款, 是摆在每个交通人面前的一个重要课题。 面对巨大的公路工 程建设市场, 为了提高公路建设质量, 合理降低建设成本, 只有通过招投标的方 式, 引入竞争机制, 才能防止垄断和地方保护主义现象的产生。 才能减少建设市 场的行政干预。按照公平、公正、科学、择优的原则选择优秀的承包单位参与公 路建设, 已成为全行业的共识。 但招投标在我国尤其是在公路建设领域毕竟还是 新生事物,其诞生发展仅 1O 年,交通部推出公路工程施工招标文件范本仅 7年, 从市场的培育到法律的健全都得有一个发展过程, 需要我们不断的实践、 总 结、完善和创新。现就笔者在招投标工作中的见解浅谈如下:l 招投标发展历程工程项目招投标, 指在国家法律保护和监督下进行业主与承包商双方同意下的 交易活动, 是对未来建设产品市场预价格进行交易的一种采购方式。 工程建设项 目实行招投标制是目前国际通用的、比较成熟的且科学合理的工程承发包方式。 经过近百年来的发展,尤其是国际咨询工程师联合会所确立的 FIDIC 合同条件的 引入以及工程监理制度的建立, 使得招投标制度日趋成熟和完善, 目前已成为体 现公平、 高效与合理性的工程承发包标准制度。 改革开放以后, 招投标制被引入 我国。 我国最早采用招投标方法进行国际招标的工程是某水电站工程, 建设的结 果, 不仅大大节约了投资 (接近 1/3 , 而且保证了工期, 提高了质量。 自此以后, 招投标制就在我国逐步推行起来。 经过 lO 多年的发展, 我国实行招投标的工程占 当年旋工数量的比例已由 1984年的 4. 8%上升到 1994年的 40. 6%,不少地区对 符合招投标条件的工程都实行了招投标, 招投标已逐渐成为建设市场的主要交易 方式。 全国 80%以上的地级市已建立了专门的招投标管理机构, 未成立专门机构 的地区也指定了负责部门。 全国 30个省、 自治区、 直辖市都制定了招投标管理办 法,为开展招投标工作提供了重要保证。2我国现阶段公路工程招投标现状及存在的问题2. 1最低评标法不合时宜最低评标法是我国公路工程建设在刚开始的几年里普遍采用的方法,该法操 作简单, 有利于业主控制工程造价。 但要具备建设市场诚信度高、 设计达到一定 的深度、 设计变更较少等诸多前提条件, 才能采用这个方法。 而这些前提条件恰 恰是我国公路建设招投标市场所不具备的。 诸多实践证明, 目前我国公路建设市 场诚信度不高, 设计深度不够, 投标人蓄意降低标价竞争。 采用最低评标价法的公路工程招标项目往往出现低价中标, 人为因素导致高价变更、 偷工减料, 给工 程质量带来诸多隐患。 同时施工中的大量变更也会导致腐败的产生, 故该评标法 目前在公路工程招标中已不采用。2.2 综合评审法人为因素高随着 2003年交通部公路工程施工招标文件范本的颁布,现阶段我国较多 的公路工程招标多采用此评标法。 该方法把公路工程招投标大致划分为资格预审 和投标两个阶段,尤其在投标阶段,技术标 (一般占 2O % 比例过高,经济标 (一 般占 8O % 拉不开距离,由于现在采取的多数都是公开标底,在专家打分的浮率 的基础上, 再与施工单位报价的平均价作为复合标底评经济标的标价分。 这就造 成人为因素决定是否中标的现象, 这是每个投标人最担心的事, 同时也给腐败分 子提供了可乘之机。2.3 招投标过程操作不规范(1行政干预过多。 有些单位对按国家规定应实行公开招投标的项目, 却进行 指定招标或议标,搞“暗箱”操作,最终使招投标流于形式;还有很多地方实行 地方保护主义, 监管机制往往被架空。 公路工程多为国家投资项目, 政府作为国 有资产管理者, 需要行使一定的监督管理, 才能杜绝此类行政干预过多现象的发 生。否则有可能破坏招投标的公平、公正性,导致腐败案件的发生。(2评标方法存在局限性, 评标过程违规。 在一些工程的评标委员会中, 评标 委员或者专业结构不合理, 或者与招标单位存在着千丝万缕的联系。 评标的过程 中评标专家掺杂着一些人为因素,导致评标不公的现象时有发生。2. 4借用资质,以包代管,导致工程质量失控有的地方借目前国内扩大内需、 拉动地方经济之机, 盲目搞公路建设。 由于公路 项目多,队伍少,往往是“高资质中标、低资质进场、无资质施工” 。这就造成 许多分项工程,以包代管,加之监理队伍人员素质较差、监督不到位,导致工程 质量失控,这一现象给公路投人运营带来诸多隐患。3解决措施为使工程招投标在细化实施过程中有章可循,将人为因素消除剑最小限度, 遏止不正当竞争方式和行为,真正体现竞争的公开、公平、公正,针对以上存在 的问题应做好以下几方面的工作:3. 1完善法律法规建立和健全招投标法中违规行为的惩处措施,提高其可操作性,加大执 法力度和政府监督力度。3. 2认真做好施工单位的资格预审和后审为加强工程招投标管理,施工单位的资格预审工作可委托有招标资质的机构 进行, 避免优秀队伍的落选。 资格预审及后审, 可适当增加参加同类工程项目建 设、并得到质量奖项的施工单位的预审及后审分数。3.3尽量做到评标专家的公正性(1扩大专家的抽取范围,可逐渐实行跨行业跨省抽取。(2利用计算机随机抽取,尽量减少人工干预。(3适当理顺专家的行政官员身份与专家身份。(4加强专家教育和培训, 包括新业务培训和思想道德教育, 建立评标专家记 录档案,加大对专家舞弊行为的处治力度。3. 4 加强招标过程的监管(1加强对从业人员的监管。全面提高招投标从业人员的职业道德和专业水 平, 严格依照法定权限和程序对招投标活动实施监督, 防止政府部门和个人直接 参与和干预具体招投标活动。(2建立和完善公正、高效的招投标投诉处理机制。(3改进监督手段, 建立和完善招投标监督网络信息系统。 提高行政监督、 行 业监督和社会监督效能,提升社会中介机构在净化招投标市场环境中的作用。 3. 5 采用“无标底招标、合理低价评标”法随着我国公路工程项目市场化的不断推进,总结最初的最低评标法和综合评 标法存在的不足,现已产生“无标底招标、合理低价评标砝。所谓“无标底招 标、 合理低价评标” 法是指招标人不编制标底, 将依照圉家相关规定编制的工程 预算价作为最高控制价上限, 由投标人结合当地立场行情和企业的自身实力, 一 般在不低于企业成本的范围内开展竞争, 在满足招标单位要求的情况下, 以报价 最低者为中标人的评标方法。该评标办法可消除最低评标法和综合评标法的弊 病。 有利于对招投标各环节的监督。 按照合理低价评标法规定的程序, 评标的 各个环节都在阳光下操作, 并使投标人也直接参与监督, 避免了招标单位、 招标 公司和评委左右中标结果现象的发生, 减少了商业贿赂发生的机会。 有利于提 高工程质量。由于招标部门公平招标,投标部门靠实力中标,不掺杂个人关系, 有利于招标部门对工程质量认真负责, 敢于管理, 保证工程质量。 有利于国家 建设资金的合理使用。 招标单位可以少花钱, 多办事。 投标单位可以结合自身能 力和市场情况在更大的空间自主报价, 挤出价格水分。 通过采用合理低价评标法 可有效杜绝现阶段招投标中出现的各种弊端, 力争在公路工程建设市场营造一个 良好自勺 三公”施工环境。4 结束语总之,在市场经济条件下,招投标工程是一个系统工程,目前公路工程招投 标存在的普遍问题, 急需建立投标企业资信和履约情况登记备案制度, 加强对旋 工单位资质的审查, 要求投标人提供齐全的投标保证措施。 建设单位要做到招标 前期工作细致周到, 勘察和设计文件图纸全面准确, 提供的工程量清单翔实, 招 标文件编制及评标办法规范合理。 并着重加强招投标过程的监管, 从法律制度上 规范招标的各项细节, 通过各种监管手段严格管理招投标过程, 并完善法律法规, 从而发挥招投标制度在我国公路工程建设中的重要作用。参考文献1韩世生. 浅谈公路工程招投标中的一些问题及对策 【 J 】 中国外资, 2010(16. 2刘善谦,范朝滨,陈桂军.公路工程招投标管理中的问题浅析【 J 】 .中国科 技信息.Analysis of Highway Engineering bidding frequently asked questions Summary: bidding was competitive in a market economy, is a transaction on the basis of mutual agreement, characterized by the tenderer by prior announced the purchase conditions and requirements, many bids People compete under the same conditions, tender in accordance with the provisions of the program to select the winners. This article analyses on problems in bidding of highway.Keywords: Highway Engineering; Project bidding; Problem analysisAs Chinas rapid economic development, road construction has seen significant development, as the total investment in construction of road infrastructure, in the present stage in our country is taking a demand pull, promoting the important role of local economic development. In recent years, the province for highway construction investment of 50 billion or 60 billion per year, and how to manage this large sum, it is an important topic in front of each person. Facing the huge highway construction market, in order to improve the quality of road construction, rational reducing construction costs, only by way of bidding, introduce the mechanism of competition, in order to prevent monopoly and the emergence of local protectionism. To reduce administrative intervention in the construction market. In accordance with the principles of fairness, justice, science, and selection to select outstanding contractors involved in road-building, has become an industry-wide consensus. Bidding in our country and in particular in the field of road construction is still new, its birth only 1O years of development, traffic, launch of the highway engineering construction tender document model for only 7 years, from cultivation to the soundness of the legal market should have a development process, requires continuous practice, summary, improvement and innovation. Author insights in the bidding is talking about is as follows:1 Bid historyProject bidding, under the supervision of the national legal protection and consent of both the owner and the contractor activity, is on the market for construction products in the future trading price of a purchase. Construction project bidding system is at present internationally, more mature and a scientific and rational way of project contracting. After nearly a century of development, in particular, as established by the International Federation of consulting engineers FIDIC conditions of contract for the introduction and establishment of project supervision system, makes growing maturity and perfection of bidding system, has now become the equitable, efficient and rational system of project contracting standards. After the reform and opening up, bidding system was introduced in China. Earliest used methods of invitation to bid for international bidding project is a hydroelectric power station project, build results, not only greatly reduce the investment (close to one-third, and that the duration and improves quality. Since then, gradually up bidding system in China. After lO many years of development, China bidding of project construction is the ratio of the number of the year in 1984 to 4.Rising to 8% in 40. 6%, to comply with the tender conditions in many areas of engineering are implemented for bidding, bidding has gradually become the main trading market. National 80% of the Prefecture has established a specialized bid management institutions, has been specified in the departments that are not set up. Countrys 30 provinces, autonomous regions, and municipalities have enacted bid management approaches, provided important guarantees for bidding.2 at present bidding of highway engineering in China and existing problems2. 1 the lowest bid out ofMinimum bid is Chinas highway construction, in the beginning years of common methods, the method is simple, in favour of owners controlling engineering cost. Construction market but have high integrity,design, up to a certain depth, less design changes, and many other prerequisites, you can use this method. These preconditions are not the bidding of highway construction in our country market. Many practice has proved that Chinas highway construction market integrity is not high, designed deep enough, bidders intent to reduce price competition. Minimum bid evaluation method for Highway Engineering bidding projects often experience low price, human factors lead to variations in price, Jerry, brought many to engineering quality problems. At the same time a large number of changes in the construction will result in corruption, so the bidding evaluation method in highway engineering bidding currently has no use.2.2 comprehensive assessment of human factors of highWith the 2003 Ministry of the highway engineering construction tender document model for the promulgation of our country more Highway Engineering bidding evaluation method in more frequent use of this. The method to Highway Engineering enrollment tender General Division for qualification pre and tender two stage, especially in tender stage, technology standard (General accounted for 2O% ratio high, economic standard (General accounted for 8O% pull does not open distance, due to now take of most are is open base price, in expert scoring of floating rate of Foundation Shang, then and construction units quote of average price as composite base price comments on economic standard of price min. This phenomenon of human factors to decide whether the bid, this is something that each of the bidders are most worried about, while also offering opportunities for corrupt elements.2.3 non-standard bidding process(1 administrative intervention. Some units of public bidding should be implemented as required by national projects, tender or on the label you get is, Camera Obscura operation, eventually the bid a mere formality; there are plenty of places to implement local protectionism, regulation tends to be elevated. Highway Engineering investment project for the State, the Government as a State-owned asset managers, need to exercise a certain degree of supervision and management, administrative intervention to put an end to such phenomena. Or else they might undermine the fairness and impartiality of the bidding, resulting in the occurrence of cases of corruption.(2 evaluating bid method limitations, bidding process violations. In some engineering bid evaluation Committee, members of the bid or professional structure is unreasonable, or there is an intricate relationship with tender units. During the bid evaluation expert mixed with some human factors, leading to unfair bidding sometimes happen.2. 4 loan qualification, to escrow, leading to runaway engineering qualityIn some places take China to expand domestic demand and spur local economic machine, blindly engaged in road construction. Because highway projects, team small, tend to be entry of bid in a high-quality, low quality, no qualification of construction. This resulted in many projects, to escrow, coupled with poor quality of supervision staff, inadequate supervision, resulting in quality out of this operation brings many risks of highway investment and people.3 solutionsTo make the project tendering and refinements in the process of implementing rules, human factors eliminate minimum limits to curb acts of unfair competition and, truly reflect competition in an open, fair and just, for the above problems should do the following areas of work:3. 1 perfect laws and regulationsLaw on establishment and improvement of the bidding in the violation of sanctions, to improve its operability and stepping up law enforcement and government supervision.3. 2 serious construction unit after the pre-qualification and auditTo strengthen the management of project bid invitation and bidding, construction units of prequalification for bidding qualification bodies can be commissioned, avoid best teams losing. After prequalification and audit, may be appropriate to increase the participation in the construction of similar projects, and get quality award of the construction unit of the pre and post examination score. 3.3 as far as possible bidding evaluation experts of Justice (1 expand the scope of expert extracted, gradually pulled implementing cross-industry across the province. (2 randomly selected by computer to minimize human intervention. (3 appropriate rationalize capacity as administrative officials and experts of the experts. (4 to strengthen the education and training of experts, including new business training and ideological and moral education, establishment of evaluation experts record files, increase the intensity of treatment for expert fraud. 3. 4 strengthening the supervision of tendering process (1 strengthening supervision in China. Professional ethics and professional standards in China to improve bidding, bidding activities strictly in accordance with statutory authority and procedures for exercising supervision to prevent government departments and individuals directly involved in the bidding of specific activities and interventions. (2 establish and perfect a just and efficient complaint handling mechanism of bidding. (3 improved monitoring tools, establish and perfect the supervision network information system of bidding. Improving administrative Supervision, monitoring and supervision efficiency of industry, enhance social intermediaries in cleaning bidding market role in the environment. 3. 5 non-price bottom bidding and reasonable low price bidding method Along with the highway project marketing push, summing up the initial minimum bid and lack of comprehensive evaluation method, is now producing non-price bottom bidding and reasonable low price bid 。 . So-called no base price tender, and reasonable low price comments on standard method is means tender people does not prepared base price, will in accordance with horse stable home related provides prepared of engineering budget price as highest control price ceiling, by tender people combination local position market and enterprise of itself strength, General in does not below enterprise cost of range within carried out competition, in meet tender units requirements of situation ， to quote minimum who for bid people of comments on standard method.The bid to eliminate the minimum bidding evaluation method and synthetic evaluation method for defects. to bid every link on supervision. Reasonable low price bidding in accordance with the procedure prescribed by law, evaluation of all aspects of operations in the Sun, and bidder is also directly involved in the supervision, avoiding the bid in a tender, tendering company and about the judges results, reducing the occurrence of commercial bribery. conducive to improving the engineering quality. Due to the tender sector fair bidding, bid in a tender departments rely on strength, not doping, conducive to the bid serious and responsible departments for engineering quality and management, ensure the quality of works. fair use in favour of nation-building funds. Tender units can spend less, do