每(mei)經(jing)(jing)編輯(ji)｜金(jin)微(wei) 每(mei)經(jing)(jing)記者(zhe) 李(li)澤民 發自(zi)北京    

金微 每(mei)經記者 李(li)澤(ze)民 發自北京

審計(ji)署審計(ji)長劉家義昨天 （6月(yue)27日）在北京透露，京滬高鐵(tie)全線(xian)土建招標項(xiang)目存在突出問題。

劉家義所指的違(wei)規(gui)事實是，鐵道部將資(zi)格(ge)預審(shen)申(shen)請(qing)文件的獲取(qu)時間(jian)由至(zhi)(zhi)少(shao)5個工作日(ri)縮短(duan)至(zhi)(zhi)13小時，從獲取(qu)到遞交(jiao)時間(jian)由規(gui)定的一般不少(shao)于7天縮短(duan)至(zhi)(zhi)不到24小時，這反映了在重大投(tou)(tou)資(zi)項目中(zhong)招投(tou)(tou)標管(guan)理不規(gui)范問題較為突出(chu)。

據鐵(tie)道部出(chu)(chu)臺的《鐵(tie)路建設工程施工招標投標實施細則》第二(er)十一(yi)條規(gui)定，自資格預審文件(jian)或者(zhe)招標文件(jian)出(chu)(chu)售(shou)之(zhi)日起(qi)至停止出(chu)(chu)售(shou)之(zhi)日止，最(zui)短不得(de)少于5個(ge)工作日。

政(zheng)府采購法專家(jia)谷(gu)遼海在(zai)接受《每日經(jing)濟新聞(wen)》記者采訪(fang)時表示，《中(zhong)華人(ren)民共和國(guo)招(zhao)標(biao)(biao)投標(biao)(biao)法》規(gui)定的(de)(de)招(zhao)標(biao)(biao)單位從發布公告到(dao)開標(biao)(biao)的(de)(de)時間最短不得少于20日，其目的(de)(de)在(zai)于防(fang)止(zhi)時間過短限制(zhi)部分企業的(de)(de)參與(yu)，也可以(yi)防(fang)止(zhi)信息不透(tou)明導致(zhi)的(de)(de)暗箱(xiang)操作。

京滬高(gao)鐵(tie)全線土建(jian)招標違規(gui)

受(shou)國務(wu)院委托，劉(liu)家(jia)義昨日向(xiang)全國人大(da)常委會作關于2011年度的審計工(gong)作報告。針對(dui)京滬高(gao)鐵(tie)、西氣東輸(shu)二線工(gong)程和中央支持新(xin)疆發(fa)展項目(mu)、中小學校舍安全工(gong)程等重大(da)投(tou)資(zi)項目(mu)，劉(liu)家(jia)義說(shuo)，這些(xie)項目(mu)在招投(tou)標、投(tou)資(zi)控制和資(zi)金(jin)使用、工(gong)程管(guan)(guan)理(li)等方面(mian)存在一些(xie)問(wen)題(ti)。其中，招投(tou)標管(guan)(guan)理(li)不規范問(wen)題(ti)仍較突出，審計共發(fa)現此(ci)類問(wen)題(ti)金(jin)額(e)389.05億元。

今年3月19日，審(shen)計署(shu)發布《京(jing)(jing)滬(hu)高速(su)鐵(tie)路建設項目(mu)2011年跟蹤審(shen)計結果》就曾提到，京(jing)(jing)滬(hu)高鐵(tie)存在“土(tu)建施工和個別物(wu)資(zi)采購招(zhao)(zhao)投(tou)標(biao)不規(gui)范”等問題，除了京(jing)(jing)滬(hu)高鐵(tie)全線土(tu)建施工招(zhao)(zhao)標(biao)未(wei)認真(zhen)執行有關招(zhao)(zhao)投(tou)標(biao)法規(gui)的時限(xian)規(gui)定(ding)，審(shen)計署(shu)還發現(xian)，個別物(wu)資(zi)采購未(wei)按規(gui)定(ding)招(zhao)(zhao)標(biao)或招(zhao)(zhao)標(biao)評標(biao)不規(gui)范，涉及(ji)金額8.49億元。

審(shen)計報告稱，針對以上問題(ti)，鐵道部表示，在今后的工程建設和物資采購招(zhao)標(biao)(biao)投(tou)標(biao)(biao)工作中將嚴(yan)格做到(dao)依法(fa)合規，并出臺了《鐵路(lu)建設工程施(shi)(shi)工招(zhao)標(biao)(biao)投(tou)標(biao)(biao)實(shi)施(shi)(shi)細(xi)則(ze)》和《鐵路(lu)工程施(shi)(shi)工招(zhao)標(biao)(biao)標(biao)(biao)段抽簽(qian)規則(ze)》，以完善相關制度(du)，加強鐵路(lu)建設招(zhao)投(tou)標(biao)(biao)管(guan)理。

而京(jing)滬(hu)高鐵(tie)土建(jian)工(gong)(gong)程的招(zhao)標在2007年底就(jiu)已(yi)開始(shi)，當年12月(yue)5日，京(jing)滬(hu)鐵(tie)路客運專線公司(si)籌(chou)備組(zu)發布公告，全面招(zhao)標京(jing)滬(hu)高鐵(tie)的土建(jian)施工(gong)(gong)單位、工(gong)(gong)程監理和工(gong)(gong)程技術咨詢機構，招(zhao)標截止日期(qi)為(wei)當月(yue)17日。

谷遼海告(gao)訴《每日經濟(ji)新(xin)聞》記者，國(guo)家有招(zhao)標(biao)法(fa)，但(dan)一些(xie)部(bu)門也會制定(ding)自己的(de)(de)招(zhao)標(biao)法(fa)規(gui)。如果依據《中華人(ren)民共和(he)國(guo)招(zhao)標(biao)投(tou)標(biao)法(fa)》，招(zhao)標(biao)單位從發布公(gong)告(gao)到開標(biao)的(de)(de)時間(jian)需要20天(tian)(tian)。通俗來說這(zhe)20天(tian)(tian)就是(shi)等標(biao)期(qi)，這(zhe)期(qi)間(jian)參與投(tou)標(biao)的(de)(de)公(gong)司需要開會討論、制作標(biao)書等，20天(tian)(tian)也是(shi)為了(le)讓(rang)更(geng)多的(de)(de)企業參與競標(biao)。“鐵道部(bu)出臺的(de)(de)只是(shi)部(bu)門的(de)(de)規(gui)章，而招(zhao)標(biao)法(fa)是(shi)國(guo)家法(fa)律(lv)，當(dang)部(bu)門出臺的(de)(de)規(gui)定(ding)與國(guo)家法(fa)律(lv)是(shi)相(xiang)沖突的(de)(de)，國(guo)家法(fa)律(lv)應處(chu)上位。”

四大(da)央企(qi)集團分享(xiang)“大(da)餐(can)”

據了解(jie)，當(dang)時京滬(hu)高鐵土建施(shi)工招標共劃分6個(ge)合同(tong)段，每個(ge)合同(tong)段的長度(du)從153公里(li)到286公里(li)不等(deng)，涉及資金800億元(yuan)，參與投標的單位必(bi)須(xu)是具(ju)有鐵路工程(cheng)(cheng)施(shi)工總承包特級資質(zhi)的集(ji)團(tuan)公司，或具(ju)有公路、水(shui)利水(shui)電等(deng)工程(cheng)(cheng)施(shi)工總承包特級資質(zhi)的總公司。

2008年1月3日，鐵(tie)(tie)(tie)道(dao)(dao)部(bu)下(xia)屬的鐵(tie)(tie)(tie)道(dao)(dao)工(gong)程(cheng)交(jiao)易中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)心公(gong)布京滬(hu)高速鐵(tie)(tie)(tie)路土(tu)建(jian)(jian)工(gong)程(cheng)施(shi)工(gong)的開標(biao)(biao)結果，中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)鐵(tie)(tie)(tie)、中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)鐵(tie)(tie)(tie)道(dao)(dao)建(jian)(jian)筑總(zong)(zong)公(gong)司(si)(si)(si)、中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)建(jian)(jian)筑工(gong)程(cheng)總(zong)(zong)公(gong)司(si)(si)(si)、中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)交(jiao)通(tong)建(jian)(jian)設股份(fen)有限公(gong)司(si)(si)(si)以及中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)水(shui)利水(shui)電建(jian)(jian)設集團公(gong)司(si)(si)(si)在內的五大集團旗下(xia)15家公(gong)司(si)(si)(si)參與了土(tu)建(jian)(jian)投標(biao)(biao)。兩(liang)天后，鐵(tie)(tie)(tie)道(dao)(dao)工(gong)程(cheng)交(jiao)易中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)心公(gong)布的 《新建(jian)(jian)京滬(hu)高速鐵(tie)(tie)(tie)路土(tu)建(jian)(jian)工(gong)程(cheng)施(shi)工(gong)總(zong)(zong)價承包招標(biao)(biao)中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)標(biao)(biao)結果》顯(xian)示(shi)，中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)鐵(tie)(tie)(tie)道(dao)(dao)建(jian)(jian)筑總(zong)(zong)公(gong)司(si)(si)(si)旗下(xia)的中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)鐵(tie)(tie)(tie)十(shi)七局(ju)、中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)鐵(tie)(tie)(tie)十(shi)二局(ju)分別中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)標(biao)(biao)TJ-1與TJ-4標(biao)(biao)段(duan)；中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)鐵(tie)(tie)(tie)股份(fen)有限公(gong)司(si)(si)(si)旗下(xia)的中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)鐵(tie)(tie)(tie)一(yi)局(ju)、中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)鐵(tie)(tie)(tie)三局(ju)分別中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)標(biao)(biao)TJ-2與TJ-5標(biao)(biao)段(duan)；中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)水(shui)利水(shui)電建(jian)(jian)設集團中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)標(biao)(biao)TJ-3標(biao)(biao)段(duan)；中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)交(jiao)通(tong)建(jian)(jian)設股份(fen)中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)標(biao)(biao)TJ-6標(biao)(biao)段(duan)。6個標(biao)(biao)段(duan)施(shi)工(gong)總(zong)(zong)報(bao)價合計約為837億元(yuan)。其中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)，中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)國(guo)(guo)鐵(tie)(tie)(tie)建(jian)(jian)中(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)(zhong)標(biao)(biao)份(fen)額(e)占(zhan)總(zong)(zong)額(e)約40%。

參與投(tou)標的(de)五大集團(tuan)中(zhong)，唯一沒有(you)中(zhong)標的(de)是中(zhong)國建筑工程總(zong)公司。

當時(shi)有(you)媒體報道(dao)稱(cheng)，京滬鐵路客運專線公(gong)(gong)司籌備(bei)組辦公(gong)(gong)室工(gong)作人員稱(cheng)，土建施(shi)工(gong)和工(gong)程(cheng)監(jian)理招(zhao)標面向(xiang)國內機構或(huo)單(dan)位(wei)，但實(shi)際結(jie)果是被四大(da)央企集團的6家公(gong)(gong)司收入囊中，沒有(you)一家民營(ying)企業投標。

谷遼海說，鐵(tie)路系統的(de)(de)采(cai)購招(zhao)標規(gui)(gui)則像是(shi)自行一套，沒有(you)(you)外方的(de)(de)監督(du)，涉及很多“潛規(gui)(gui)則”的(de)(de)問題，容易造成(cheng)壟斷和腐敗。“如果在短時(shi)間(jian)內從公(gong)告(gao)到(dao)完成(cheng)招(zhao)標，沒有(you)(you)起到(dao)廣而告(gao)之(zhi)的(de)(de)效果，這可能(neng)會排除規(gui)(gui)模化優質企(qi)業的(de)(de)進入，最(zui)后只能(neng)是(shi)照顧本部門的(de)(de)企(qi)業，使得(de)招(zhao)標成(cheng)為一種形式。”

鐵(tie)道部(bu)(bu)除了(le)全線土建(jian)工程招標存(cun)在(zai)違規(gui)以外，審計署發布的(de)審計結(jie)果(guo)還顯示，鐵(tie)道部(bu)(bu)的(de)預(yu)(yu)算執行(xing)和財(cai)政收支(zhi)也(ye)存(cun)在(zai)多項違規(gui)。審計報(bao)告稱，2009年至2010年，鐵(tie)道部(bu)(bu)在(zai)未按規(gui)定公(gong)開招標的(de)情況下，投資1850萬(wan)(wan)元(yuan)制作中(zhong)(zhong)國鐵(tie)路宣(xuan)傳片，未達到(dao)預(yu)(yu)期效果(guo)。2011年，鐵(tie)道部(bu)(bu)通過所屬工程管理(li)中(zhong)(zhong)心申(shen)請的(de)中(zhong)(zhong)國鐵(tie)路“走出去”專項預(yu)(yu)算500萬(wan)(wan)元(yuan)，實際(ji)未執行(xing)。

至2011年(nian)底，鐵(tie)(tie)道部未按(an)規(gui)定將第七屆世界高速鐵(tie)(tie)路大會(hui)會(hui)議費(fei)結余1538.66萬元(yuan)收(shou)回納入本級法定賬(zhang)冊核(he)算；對應收(shou)所屬機關服務局和已注(zhu)銷企業興鐵(tie)(tie)物資公司的賬(zhang)款共242.43萬元(yuan)，賬(zhang)齡(ling)超過7年(nian)仍(reng)未清理。至2011年(nian)底，所屬單位(wei)賬(zhang)面價值(zhi)共9415.73萬元(yuan)的資產未按(an)規(gui)定在(zai)會(hui)計決算報表中反(fan)映。