政府采购投诉处理决定书

甬采购 处字 [2018] 第002号

   投诉人: 浙江盈达科技发展有限公司

住所: 宁波市江东北路和丰创意广场丰庭楼18F

被投诉人（1）: 宁波市政府采购中心

 住所: 宁波市宁穿路1901号市行政服务中心3楼

被投诉人（2）: 宁波市综合行政执法局

住所: 宁波市鄞州区甬港南路180号

一、投诉受理

投诉人因对被投诉人就“宁波市综合行政执法局行政执法全过程记录设备项目（采购编号：NBZFCG2017308G）”的质疑答复不满,于2017年12月15日向本机关提起投诉，本机关于2017年12月15日受理。经依法对本次政府采购活动的采购文件、投标响应文件、评审资料及其他相关材料进行审查，并向被投诉人及其他投诉相关当事人进行调查了解，现本案已审查终结。

二、投诉内容

（一）综合执法局认为无需完全遵从GA/T 947.2-2015标准的问题，我公司认为：《中华人民共和国公共安全行业标准》是国家公共安全相关的行业强制性标准，并非只适用于公安部，而是涉及所有公共安全相关领域。该标准也是执法视音频记录系统行业目前唯一的由国家部分发布的标准，是行业的事实标准，根据《中华人民共和国标准化法》，相关生产制造企业应该遵循。目前单警执法视音频记录系统的行业产品质量参差不齐，是否满足该标准，应作为检验产品质量的关键。在《宁波市综合行政执法局行政执法全过程记录设备项目》招标文件发布的参数中，大部分参数不符合该标准要求，本着执法设备采购的严谨性，应当参考此标准规范。

（二）招标文件中“技术参数”中执法记录仪（在线）第15条、执法记录仪（离线）第13条、采集工作站（综合管理平台软件）第11条均要求“为确保系统的稳定可靠，执法记录仪、采集工作站、视频存储等设备应统一品牌”，且视频存储设备第1条要求“设备制造商为专业存储厂商，非OEM品牌”。采购单位仅以“为确保系统的稳定可靠”为由，要求执法记录仪、采集工作站、视频存储等设备统一品牌的理由太牵强，这里前端、后端设备明确，且确保系统的稳定可靠是由供应商来保证，负责任；也需要最终供应商的技术解决方案多样化、合理化。而非生产制造商的“统一品牌“来解决和保证。此外，从设备参数（带★号）角度来讲，假如采购单位所说要统一品牌的厂商，据我公司调查，具备此项能力的有科达、大华、海康、宇视。但是在招标文件带★号的条款共18条，全部能满足要求的只有海康一家，其他厂商都无法同时满足，且满足条款不会多于10条，所以得分相差严重，具有明显的倾向性。

（三）招标文件评分标准中“商务”部分第1条要求“具备自2013年以来信息系统集成（需含软件开发）合同金额1000万及以上的项目案例”，该评分项的业绩要求与本采购项目没有针对性关联,违反了政府采购法实施条例第二十条规定的关联性原则。“信息系统集成（需含软件开发）”项目涵盖范围广泛。仅以“信息系统集成”定义业绩要求过于粗糙，大部分“信息系统集成”项目与本执法设备采购项目没有直接关联，相关业绩并不能真实评价投标人对本采购项目的履约能力，因此业绩评价应当建立在“执法仪系统”的相关同类业绩基础上，才能有利于采购项目履约能力的客观评价。

三、被投诉人申辩

（一）被投诉人（1）辩称

1、关于公安行业标准问题:本项目属于城市行政执法管理部门的采购项目，公安行业标准不是本项目必须执行的标准，采购需求不采用该标准，有利于各投标产品参加竞争。

2、关于采购技术需求问题:本顶目的技术参数及其它要求，是采购人根据项目特点确定的，采购需求中没有设置实质性条款作为无效投标的条件，打“★”是重要但不是必须满足的条款，在本项目中所有需求条款均允许偏离，具体由评标委员会在评审时按招标文件确定的评审内容进行评分。实际开标时有六个品牌的产品参加了投标，因此不存在歧视待遇或差别待遇。

3、关于评分标准问题:本项目属于软硬件系统集成项目，将系统集成案例设置为评分因素，不存在歧视待遇或差别待遇。

（二）被投诉人（2）辩称

1、关于投诉事项1。根据调查显示，GA为公共安全行业标准，GA/T是公共安全行业推荐标准。GA/T947.2-2015是中华人民共和国公安部发布针对执法记录仪的设计、制造和检验的推荐标准，且该标准不涉及硬件设备的具体参数指标，其他用途的视音频记录仪仅供参照作用。视音频记录仪的设备质量主要以国家级检测机构检测和使用实效为准。我局根据综合行政执法工作特点，综合参考该标准和当前行政执法全过程记录硬件设备、管理软件发展趋势的基础上，经深入调研、集体研商后提出了符合实际的技术指标

2、关于投诉事项2。执法记录仪主要负责采集现场的音像；采集工作站内置电子证据管理系统软件，负责将记录仪摄录的执法资料自动上传至指定服务器，经拷贝整理后上传至后台管理系统，供查询、回放和管理；视频存储将执法过程产生的视图文件资料进行归一化、可靠化管理，将重要视频数据设置上传时间等自动上传存储设备集中保存，各地可通过执法视图管理模块进行查看播放。以上，涉及系统软硬件协议交互。前后端统一品牌可以有效避免项目型对接中单次开发造成的漏洞、缺陷等原因而影响系统使用和维护，有效避免存储设备应用软件的重新定制开发而造成数据上传和入库保存的漏洞问题。因此，我局从更有利于系统稳定可靠，项目后期维护方便等角度出发，要求执法记录仪、采集工作站、视频存储设备能够统一品牌。另据市场调查，国内主流的安防厂家(浙江大华、浙江宇视、科达等)均具有执法记录仪、视频存储设备等前后端统一品牌的能力，且均为专业的自研存储厂商。

3、关于投诉事项3。本次招标项目包含但不限于执法仪硬件建设，还包括市局及各区县(市)局的软件平台、采集站的开发和系统集成，考虑到招标预算金额，设定相关案例要求符合《中华人民共和国招标投标法》、《中华人民共和国政府采购法》、《政府采购货物和服务招标投标管理办法》等相关国家法律法规执行，在确保项目建设需求的前提下，秉持公平公开公正的原则让所有供应商或潜在供应商参与公平竞争。

四、本机关调查结果

（一）根据《中华人民共和国标准化法》第二章第六条规定，对需要在全国范围内统一的技术要求，应当制定国家标准。国家标准由国务院标准化行政主管部门制定，国家标准代号分为 GB和GB/T，GB代号国家标准含有强制性条文及推荐性条文。对没有国家标准而又需要在全国某个行业范围内统一的技术要求，可以制定行业标准，GA是公安行业标准代号。投诉人提及的公安部的GA/T 947.2-2015标准，是《单警执法视音频记录系统》（GA/T947-2015）标准中的第2部分:执法记录仪。该标准是公安部主导制定的“单警执法”设备的推荐性行业标准，并不是国家标准。公安部门和综合行政执法部门的执法设备本质上类同，相关产品生产商也在共享或借鉴公安部的行业技术标准，但公安部门和综合行政执法部门不同属一个行业，强行执行GA/T 947.2-2015标准并无法定依据，投诉人的投诉事项缺乏事实依据，不予支持。

（二）设置了“为了确保系统的稳定可靠，执法记录仪、采集工作站、视频存储等设备应统一品牌”的条款（共3条），且该条款在执法仪在线、离线和采集工作站的需求中都有要求，需求条款设置重复。信息化产品的专业化细分市场已十分成熟，如服务器、存储设备等具有先进性和兼容性的产品可选性广泛。强调整个系统同品牌来推断产品性能良好或有利于提高采购项目质量的理由不充分也不科学，产品的性能和质量应当以投标单位的技术解决方案和服务承诺以及专家评审的专业评判来衡量，单方面以“同品牌”衡量产品性能和质量有失公平，也不利于竞争。本采购项目是公开招标                                                       项目，采购信息公开透明，市场（供应商）对本采购项目的参与及投标响应是客观和全面的，本采购项目投标供应商实际响应结果能客观反映出执法仪设备的技术现状。从本采购项目供应商对该条款实际响应情况来看，只有中标单位（海                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                     康威视品牌）满足，其他投标单位无一满足，“统一品牌”条款设置倾向于特定产品，属于政府采购法实施条例第二十条第（三）项“采购需求中的技术、服务等要求指向特定供应商、特定产品”对供应商实行差别待遇或者歧视待遇的情形。

（三）采购文件评审办法商务部分设置了“具备自2013年以来信息系统集成（需含软件开发）合同金额1000万及以上的项目案例”的评审条款。“项目案例”评审条款设置的目的是为了评价投标供应商针对本采购项目的履约经验和履约能力，评价的要件应当要与采购项目的具体特点和实际需要相适应或者与合同履行有关。该评审条款只强调了系统集成和软件开发的评价要件，未对硬件要件和同类性要件进行必要评价。信息化系统集成项目内涵广泛，本采购项目以执法仪、采集存储设备采购为主，仅以“信息系统集成（需含软件开发）”业绩（并设置1000万以上合同金额的门槛）来评价投标人履约经验和履约能力缺乏针对性，从投标响应供应商实际提供的业绩案例分析，没有一个案例与本次采购项目内容（执法仪）类同。“信息系统集成（需含软件开发）”业绩案例评审条款的设置与采购项目的具体特点不相适应，属于政府采购法实施条例第二十条第（二）项“设定的资格、技术、商务条件与采购项目的具体特点和实际需要不相适应或者与合同履行无关”对供应商实行差别待遇或者歧视待遇的情形。

五、处理决定

鉴于以上事实，投诉人投诉事项第1项缺乏事实依据，不予支持，其他投诉事项成立。同时本采购项目另外当事人也对本采购项目提起投诉，投诉内容除了投诉人提及的内容外，还包括采购文件技术★号条款问题、强制提供“CNAS认可”问题。本机关认为“宁波市综合行政执法局行政执法全过程记录设备项目（采购编号：NBZFCG2017308G）”采购文件编制违反了《中华人民共和国政府采购法》第三条规定的公平竞争原则和《中华人民共和国政府采购法实施条例》第二十条第（二）、（三）、（四）项规定，根据《中华人民共和国政府采购法》第三十六条、第五十六条、《政府采购供应商投诉处理办法》（财政部令第20号）第十七条第（三）项、第十八条第（二）项之规定，本机关决定：“宁波市综合行政执法局行政执法全过程记录设备项目（采购编号：NBZFCG2017308G）”采购活动违法，责令修改采购文件重新开展采购活动。

如不服本决定，可在收到本决定书之日起60天内依法申请行政复议，或在收到本决定书之日起6个月内提起行政诉讼。

                               宁波市财政局

                                  2018年1月17日