论美国政府采购促进中小企业发展之公共政策
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摘要
政府采购公共政策功能是现代政府采购政策及法制的重要组成部分,它要求政府采购制度在满足政府日常行政需求的同时,要更多地考虑社会公共利益的问题。发挥政府采购公共政策功能,促进中小企业发展,是政府采购特性的内在要求和中小企业在国民经济中的地位使然。早在100多年以前,美国就建立了政府采购制度,其是政府采购制度相对完善的国家之一,也是赋予政府采购较多政策性功能的国家之一。特别是2004年修改的《联邦政府采购条例》,在实体和程序方面进一步细化了联邦政府扶持中小企业参与政府采购市场的规定。与其他国家相比,在公共采购领域,美国联邦政府采购法更深层次地影响着中小企业的发展。例如,其设有小企业规模标准制度、小企业预留制度、小企业分包计划、小企业竞争示范计划等。其中可供学习和借鉴的经验有：全面的政府采购政策、完善的政府采购制度、设有专门的小企业管理局以及健全的政府采购审查机制。而我国的政府采购立法起步较晚,直至2009年国务院《关于进一步促进中小企业发展的若干意见》的颁布,才在中央层面建立了长期促进中小企业发展的政府采购基本法律框架,但这些规定都还停留在较为原则性规定层面,亟待细化。与中央立法相比,地方立法走得更远,已经开始了以制定规章的方式探索政府采购促进中小企业发展的路径。但由于我国促进中小企业发展的政府采购制度不完善,中小企业参与政府采购的现状不是很理想。目前,我国面临的问题主要有：缺乏对政府采购公共政策功能的全而认识、缺乏相关的政府采购配套制度以及缺乏统一的中小企业管理机构。针对这些问题可以提出以下完善建议：提高对政府采购公共政策功能的认识、以补正的方式解决中小企业参与政府采购市场难的问题、构建我国促进中小企业发展的政府采购制度以及设立统一的中小企业管理部门。
The public policy's function of the government procurement has been the important part of the policy and the modern legal system of the government procurement, which requires that the legal system of the government procurement should pay more attention to social and public interests at the same time that it should meet the government's daily administrative needs. The reason why the legal system of the government procurement must promote the development of small business is that the characteristics of the government procurement and the position of small business in the national economy require it to do so. As early as 100 years ago, The United States established the legal system of the government procurement which is the one of the countries that have the relatively perfect system of the government procurement and that give more policy's function to the government procurement. The FAR, amended in 2004, further specifies the substantive or procedural provisions to help small business to participate in government procurement market. Compared to other countries in the area of public procurement, Federal Government Procurement Law deeper impact on the development of small business. For example, Small business size standard system、The system of aside-for small business、Small business subcontracting plan and Small business competitive demonstration program. The experience available to learn are:Comprehensive public policies of government procurement、Perfect system of government procurement、professional small business administration and sound government procurement review mechanisms. The Government Procurement Law of China starts late. " opinions of State Council on further promoting the development of small business" promulgated in 2009, indicates that the basic framework of China's Government Procurement Law for small business's development has be established, but these laws still belong to the provisions of the principle and needs to be further refined. Compared with the Central legislation, local legislation has begun to explore the path of government procurement promoting the development of small business with the way of drawing up rules and regulations. However, due to the law system of China's government procurement promoting the development of small business is imperfect, the status of small business's participation in government procurement market is not very satisfactory. Currently, the main problems faced are:the lack of comprehensive understating about the public policy's function of government procurement、the lack of supporting systems of government procurement and the lack of a unified administration. The following recommendations can be made as the response to above problems:raising the consciousness of the public policy's function of government procurement、solving the problem that it is difficult for small business to take part in the government procurement with the way of implementing regulations、building the system to promote the development of small business and setting up the unified small business administration.
The public policy's function of the government procurement has been the important part of the policy and the modern legal system of the government procurement, which requires that the legal system of the government procurement should pay more attention to social and public interests at the same time that it should meet the government's daily administrative needs. The reason why the legal system of the government procurement must promote the development of small business is that the characteristics of the government procurement and the position of small business in the national economy require it to do so. As early as 100 years ago, The United States established the legal system of the government procurement which is the one of the countries that have the relatively perfect system of the government procurement and that give more policy's function to the government procurement. The FAR, amended in 2004, further specifies the substantive or procedural provisions to help small business to participate in government procurement market. Compared to other countries in the area of public procurement, Federal Government Procurement Law deeper impact on the development of small business. For example, Small business size standard system、The system of aside-for small business、Small business subcontracting plan and Small business competitive demonstration program. The experience available to learn are:Comprehensive public policies of government procurement、Perfect system of government procurement、professional small business administration and sound government procurement review mechanisms. The Government Procurement Law of China starts late. " opinions of State Council on further promoting the development of small business" promulgated in 2009, indicates that the basic framework of China's Government Procurement Law for small business's development has be established, but these laws still belong to the provisions of the principle and needs to be further refined. Compared with the Central legislation, local legislation has begun to explore the path of government procurement promoting the development of small business with the way of drawing up rules and regulations. However, due to the law system of China's government procurement promoting the development of small business is imperfect, the status of small business's participation in government procurement market is not very satisfactory. Currently, the main problems faced are:the lack of comprehensive understating about the public policy's function of government procurement、the lack of supporting systems of government procurement and the lack of a unified administration. The following recommendations can be made as the response to above problems:raising the consciousness of the public policy's function of government procurement、solving the problem that it is difficult for small business to take part in the government procurement with the way of implementing regulations、building the system to promote the development of small business and setting up the unified small business administration.
引文
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②合同官员指,在美国政府采购体系中,专门从事政府采购行为,为联邦政府授权的官员。
③FAR 19.102
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④该项政策体现在1947年通过的国防服务采购法案中
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①Small Business Act of 1953第23节
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[9][台]罗昌发.政府采购法与政府采购协定论析[M].台湾：元照出版有限公司,2008.
[10][台]罗志洲.美国政府及政治[M].台湾：正中书局,2001.
[11]A.C.L. Davies. The Public Law of Government Contracts[M].Landon:Oxford University press,2008.
[12]John W. Whelan & James F. Nagle. Federal Government Contracts[M].Egan:Foundation Press Thomson/West,2007.
[13]Terrence M. O'Connor. Understanding Government Contract Law[M].Washington: Management concepts.2007.
[14]W.Noel Keyes. Government Contracts under the Federal Acquisition Regulation[M].Sao Paulo:West Publishing Corporation,2004.
[1]中国政府采购网:http://www.ccgp.gov.cn/
[2]中国政府采购新闻网:http://www.cgpnews.cn/
[3]美国小企业管理局官网：http://www.sba.gov/
[4]美国通用服务管理局官网:http://www.gsa.gov/
[1]中华人民共和国政府采购法
[2]中华人民共和中小企业促进法
[3]上海市政府采购促进中小企业发展暂行办法
[4]江苏省关于政府采购促进中小企业发展的意见
[5]美国联邦政府采购条例(Federal Acquisition Regulation of 2000)
[6]美国小企业法(Small Business Act of 1953)
②洪其华,黄凤梅.政府采购将向中小企业倾斜[N].市场报,200811-10(15)
①中国财政部国库司编写.政府采购[M].北京：中国方正出版社,2004：6.
①转引自：肖北庚.政府采购的概念分析[J].河北法学,2004(7)：13-15
②胡伟.西方国家政府采购法中物有所值原则[J].行政与法,2000(5)：38-39.
③姚燕.从美国政府采购制度看政府采购合同性质[EB/OL].http://xingzhengfa.calaw.cn/article/default.asp?id=701, 2010-3-19/2010-12-24
①闫海,石桂峰.政府采购立法原则[J]江西行政学院学报,2001(1)：27-29.
①[英]亚当.斯密著,谢祖钧译.国富论[M].新世界出版社,2007：27.
①肖北庚.政府采购的概念分析[J].河北法学,2004(7)：133-15.
①赵雪枝.重新认识中小企业在我国国民经济中的地位[J].湘潭师范学院报(社会科学版),2003(4) ：55-57.
②王洋.中国中小企业的地位和作用[EB/OL]. http://www.sinosure.com.cn/sinosure/xwzx/rdzt/ckyj/ckdt/12838.html 2010-1-14/2010-12-24.
①Brian G.Smith.Size Standards and Contract Bundling in the Federal Marketplace: An Uphill Battle for Small Business Owners[J].Entrepreneurial Business Law Journal, 2007(1):175-195.
②下洋.中国中小企业的地位和作用[EB/OL]. http://www.sinosure.com.cn/sinosure/xwzx/rdzt/ckyj/ckdt/128:38.html 2010-1-14/2010-12-24.
③潘跃.2009年我国个体私营企业,从业人员达1.5亿黄孟复提发展意见[EB/OL]. http://cpc.people.com.cn/GB/64093/64094/10871276.html,2010-01-29/2010-12-24.
①刘小川,黄河.美国中小企业政府采购政策的演变以其启示[J].中国政府采购,2007(11) ：56-59.
①刘小川,黄河.美国中小企业政府采购政策的演变及其启示[J].中国政府采购,2007(11)：56-59：
②W.Noel Keyes. Government Conntracts under the Federal Acquisition Regulation[M].Sao Paulo:West Publishing Corporation,2004:429.
③在美国政府采购、立法中并不存在中小企业这一概念,而均使用的是小企业(small business concern)。中小企业概念和小企业概念并没有本质的差别,均指的是需要政府采购扶持的企业,在我国理论界,两个概念可以等同使用。
①Brian G. Smith. Size Standards and Contract Bundling in the Federal Marketplace: An Uphill Battle for Small Business Owners[J]. Entrepreneurial Business Law Journal, 2007 (1):175-195.
②合同官员指,在美国政府采购体系中,专门从事政府采购行为,为联邦政府授权的官员。
③FAR 19.102
①杨小强,刘思佳.美国联邦政府帮助小企业赢得联邦采购分包合恫[J].中国政府采购,2009(12)： 26-29.
①"Streamli ning Defense Acquisition Laws" Jan.1993,pp.1-15全美独立企业联盟在其提交给国防部顾问团的报告中就指出,地方中小企业创造出了大量的工作岗位。
②W.Noel Keyes. Government Contracts under the Federal Acquisition Regulation[M].Sao Paulo:West Publishing Corporation,2004:430.
③机械工业部科学技术情报研究所综合情报研究室编译.美国小企业法[M].比京：机械工业出版社,1987：1.
④该项政策体现在1947年通过的国防服务采购法案中
①陈向平.小企业的保护社[J].创新科技,2007(4)：56 57.
②机械工业部科学技术情报研究所综合情报研究室编译.美国小企业法[M].北京：机械工业出版社1987：5.
①Small Business Act of 1953,第637节
①Small Business Act of 1953第23节
①本报编辑部.我国政府采购规模突破7000亿元[N].京华时报,2010-5-8(34)
①江苏省中小企业参与政府采购情况课题组.江苏省中小企业参与政府采购情况调研报告[J].中国政府采购,20010(2)：38-41.
②江苏省中小企业参与政府采购情况课题组.江苏省中小企业参与政府采购情况调研报告[J].中国政府采购,2010(2)：38-41.
①管晓永.中小企业界定的理论标准与实践标准[J].经济学家,2002(44)：64-68.
①本报编辑部.中小企业的幸福指数有多高[N].中国政府采购报,2011 3-8(23)
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[1]机械工业部科学技术情报研究所综合情报研究室编译.美国小企业法[M].北京：机械工业出版社,1987.
[2]刘慧,羌建新主编.全球金融危机形势下的政府采购与公共市场研究----应对全球金融危机.政府采购与公共市场改革论坛文集[M].北京：中国经济出版社,2010.
[3]邱本.自由竞争与秩序凋控--经济法的基础建构与原理阐析[M].北京：中国政法大学出版社,2001.
[4]王亚星.政府采购制度创新[M].北京：中国时代经济出版社,2002.
[5]姚传志,张福来主编.跨世纪的刚光工程：中国政府采购[M].北京：中国商业出版社,1999.
[6]张家瑾.我国政府采购市场开放研究[M].北京：对外经济贸易大出版社,2008.
[7]宗煜.政府采购概论[M].成都：电子科技大学出版社,2007.
[8]张照东.政府采购制度比较研究[M].南吕：江西人民出版社,2007.
[9][台]罗昌发.政府采购法与政府采购协定论析[M].台湾：元照出版有限公司,2008.
[10][台]罗志洲.美国政府及政治[M].台湾：正中书局,2001.
[11]A.C.L. Davies. The Public Law of Government Contracts[M].Landon:Oxford University press,2008.
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[1]中国政府采购网:http://www.ccgp.gov.cn/
[2]中国政府采购新闻网:http://www.cgpnews.cn/
[3]美国小企业管理局官网：http://www.sba.gov/
[4]美国通用服务管理局官网:http://www.gsa.gov/
[1]中华人民共和国政府采购法
[2]中华人民共和中小企业促进法
[3]上海市政府采购促进中小企业发展暂行办法
[4]江苏省关于政府采购促进中小企业发展的意见
[5]美国联邦政府采购条例(Federal Acquisition Regulation of 2000)
[6]美国小企业法(Small Business Act of 1953)