政府採購法決標程序及相關爭議之探討及修正建議

Abstract

摘 要 政府採購程序中，廠商投標文件送達機關以後，要約似應已生效。機關開標，即進入決標階段。決標階段，係機關審查廠商資格、規格、技術文件及價格之階段，政府採購法訂有嚴密完整之程序。由締約過程檢討，本文認為決標階段係機關收到廠商要約之意思表示以後，形成機關承諾意思表示的過程。該過程始於開標，而終於機關宣布決標。 由政府採購法檢討，則機關在該過程中，並非具備完全之締約自由，必須嚴格遵守政府採購法之規定，否則可能發生撤銷決標之情事。因此對於決標問題的研究，除了契約法上的探討外，尚必須考量採購法對於機關與廠商的規制，及採購法賦予機關之裁量判斷權利。職是，機關與廠商之間在決標階段，可能發生之爭議，較其他階段複雜且數量多。本文透過文獻探討研究及實證調查，也可以得到相同的結論。 本文乃將其中重要問題加以彙整，提出相關之七個問題，分別為：決標行為公法或私法定性問題、開標程序的爭議問題、底價制度適當性問題、廠商標價偏低審查程序問題、減價程序爭議問題、最有利標程序爭議問題，以及複數決標爭議問題。 上述各問題，應係決標階段許多實務爭議案例之肇因。本文乃由理論面出發，探求各問題實務面之本質，以探討較為周延的解決方案，其目的在於減少機關不確定之判斷裁量因素，降低爭議案件發生之可能性，使政府採購法更趨近公平及提昇效能之立法精神，機關與廠商有更為符合明確之依據。並透過研究過程，提出本文之建議，以使得實務問題，得到解決方案。

ABSTRACT In the process of government procurement, once the tenderer's bid documents has arrived the place assigned by the procurement organization, the offer of the supplier comes into effect. The contract awarding stage starts on opening of the tenderers’ tender package. The awarding procedure is the combination of reviewing the tenderers’ qualifications, checking the products specification proposed by tenderers, and comparing the tenderer’s bid amount with each other and the organization's estimate base price. The Government Procurement Act (GPL) regulates complete process for contract awarding procedure. This article hold a viewpoint that said process of contract awarding forms the contract acceptance of the government organization. The contract awarding procedure of government makes big difference with other civil contracting procedure. The government organizations must follow more restrictive regulations decreed on the GPL otherwise will cause revocation of the award. Therefore, analysis on the awarding procedure must consider both the contract law and GPL. The cross influences of the contract law and GPL focus on awarding procedure causes complex results and have brought many disputes between government and tenderers. This thesis searches and collects problems through pragmatic investigation and cases analysis. The main research focuses on following items: The legal characterization of the contract awarding which will cause confuse of complain process. The topic of disputes regarding process of opening of bid. Some practical disadvantages of the estimate base price on government procurement. The review procedures of the lowest tender that is unreasonable low compare with the government estimate base price. Some disputes on the process of reduction of the bid amount. The evaluation process of Most Advantageous tendering process that causes certain disputes. And last, this thesis proposes some opinions regarding the multiple award process. Preceding topics on awarding procedure causes many argues on daily government procurement. This thesis started from reasoning of the practical procurement cases. Then go through case study to touch the real character of the problem. The goal of research is first to find the best resolutions of the said topics, and second to reduce the uncertainty between different government's verdicts. This thesis also submits some revision suggestions of the GPL in order to get more effectiveness of procurement and more balance on contracting procedure between the government and the tenderers.