政府采购法律和政策(二):加拿大(下)

III.该规定在加拿大的实施

加拿大没有“购买加拿大货”的联邦法律，对GPA和NAFTA中所允许的国家级应对规定进行限制，是通过实施这些协议的法案的形式进入加拿大立法体系的。

IV.联邦采购

有报告说，加拿大政府每年大约花费200亿加元（或187亿美元）用于采购货物和服务，绝大多数货物和服务是通过加拿大公共工程和政府服务机构（PWGSC）进行的。加拿大各部可以直接采购5000加元的货物，也可以直接采购服务，对于超过5000加元的合同，他们就必须通过PWGSC进行采购了。

报告称，省级政府几乎花费了总额为180亿加元的钱采购货物和服务。虽然GPA和NAFTA还没有就这个市场的准入做出保证，但这种情况可能在改变。

对于价值在25000加元或以上的货物或服务项目、10万加元以上的绝大多数工程项目和租赁服务、76500加元以上的建筑和机械工程咨询服务项目，加拿大通过MERX公司利用政府电子招标系统（进行采购）。MERX是美迪瑞福互动技术公司旗下附属公司，也为美国招标者提供信息服务。

PWGSC采用合同、持续邀约以及协议供货等三种执行方式购买货物和服务，加拿大政府是如下介绍这三种方法的：

合同

PWGSC与其供应商之间的合同包含一个预置需求或项目范围，设定期限和条件，包括预定的数量、价格或议价基础以及支付日期。在需求是定制化的或者对政府部门独一无二的情况下，合同方式是对供应商最好的办法。

有时候，仅就服务采购来讲，当政府部门不能预先确切定义服务的性质和时限时，PWGSC采取一种“风险授权”制度：风险授权是一种模式化的行政程序，根据现有合同的条款和情况，由供应商在“被要求的同时和时段内”的基础上管理各项工作；换句话说，如果某项服务最终需要，政府将给供应商发送一个任务批准证书，这个任务批准证书界定了服务的范围、时间以及任何一项特别设定（诸如以预先设定的财政限制为基础的预算报告等。）什么情况下适用任务批准证书合同的服务项目，合适的例子就是翻译专业服务、信息专业服务和某些类型的修理和检修服务。

持续邀约

持续邀约是当某一个或多个政府部门不断重复地对同一种货物或服务提出需求时，或者当实际需求（即需求数量和提供服务的数字）事先未知的情况下，比较适用的供应方法，这时货物和服务已经准备就绪。持续邀约在特定时期内，由特定的合格供应商事先就位，他们符合（政府采购项目）的技术标准，包括固定的期限和供货条件等都无法进一步谈判。

持续邀约为政府节省时间和金钱，因为没有必要为每一次采购操作进行单独的招标程序，价格也通常由于批量采购打折扣而降低。政府没必要采购任何货物或服务，直到需求增加，签订新的合同提上日程。通过这种方法采购的供货品目包括食品、燃料、医药设备、备用部件、纸张、办公室设备以及一些专业服务等。[!--empirenews.page--]

协议供货

协议供货和持续邀约一样，是当从事先设定合格资质的供应商处采购日常所需货物和服务时采用的一种方法，但是政府没有义务采购所有的货物和服务，直到需求出现，签订合同提上日程。

然而，虽然协议供货包括一些固定的条款和条件适用于所有的合同，但不是所有合同条款都是预先决定的，举例来说，价格、议价基础、危险垃圾清理或处置的有关条目和条件等就会根据实际需要或工作期限做进一步的谈判。PWGSC通过用这种方式购买IM/IT专业服务。

PWGSC已经出台了与加拿大政府进行业务的指导目录，这个指导目录采用五个步骤支持中小企业。

V.结语

加拿大已经实施NAFTA和GPA的政府采购有关规定。前者并不覆盖次中央实体，加拿大尚未将任何省份加入后者的附录2，以相互为基础把省级实体绑定到GPA协定上。然而报告显示加拿大和美国已经达成协议改变这个状况。在联邦层面，加拿大根据有关联邦政府采购的有关法律要求行事，例外和豁免来自加拿大两个主要国际贸易协定里包含的内容。加拿大没有“购买加拿大货”法案，联邦政府采购通过由 PWGSC执行 ，联邦各部采购价值低于5000加元的货物或服务时例外。

现在加拿大政府采购中出现的主要问题是美国复苏和再投资法案（ARRA）中所包含的“购买美国货”规定。由于加拿大省级和地方采购未曾加入NAFTA规定的范围，也未将任何省份加入GPA的附录2，因而加拿大起初并未从美国ARRA的“购买美国货”规定获得例外优待。加拿大一直在寻求获得例外待遇，包括《国家邮报》和《卡尔加里先驱报》在内的许多新闻机构都报道说，政府努力将很快取得成功。　　（资料由国外法律高级专家史蒂芬·F·克拉克提供）

原文：

III. Canadian Implementing Legislation

Canada does not have a federal “Buy Canadian Act.”  The limitations on the national treatment provisions allowed for in the AGP and NAFTA are incorporated into Canadian law through the acts implementing those agreements.[52]

IV. Federal Procurement

The Government of Canada reportedly spends about Can$20 billion or approximately US$18.7 billion a year on Goods and Services.[53]  Most goods and services are purchased by Public Works and Government Services Canada (PWGSC).  Government departments spend up to Can$5000 on goods and can purchase services directly.  For contracts for over Can$5000, they must go through PWGSC.[54]

Provincial governments reportedly spend an almost identical Can$18 billion amount on goods and services.  While access to this market has not been guaranteed by the AGP or NAFTA, this situation may be changing.

Canada uses a Government Electronic Tendering Service through MERX for most contracts for goods and services valued at Can$25,000 or more, most construction and leasing services worth Can$100,000 or more, and most architectural and engineering consulting services worth Can$76,500 or more.  MERX is a subsidiary of Mediagrif Interactive Technologies, which also provides information on U.S. tenders.[55]

PWGSC buys goods and services using contracts, standing offers, and supply arrangements.  The Government of Canada has explained how these three methods are employed in the following terms:

Contracts

Contracts between PWGSC and its suppliers contain a pre-defined requirement or scope of work, and set terms and conditions including pre-determined quantities, prices or pricing basis, and delivery date.  A contract is the best method of supply when the requirement is customized and unique to one government department.[!--empirenews.page--]

Sometimes, for contracts for services only, when the Government is unable to define the precise nature and timing of a service in advance, PWGSC includes a provision for “task authorizations.”  A task authorization is a structured administrative process to authorize work by a supplier on an “as and when requested” basis in accordance with the terms and conditions of an existing contract.  In other words, when the services are eventually required, the Government issues a task authorization to the supplier.  This task authorization identifies the scope of the services, the timing, and any specific instructions (such as expenditure reporting based on pre-established financial limits). Examples of services where task authorization contracts might be considered appropriate are professional services for translation, informatics professional services, and some types of repair and overhaul services.

Standing Offers

Standing offers are the preferred method of supply when one or many government departments repeatedly order the same goods or services, which are readily available, or when the actual demand (i.e. quantity, delivery date) is not known in advance.  Standing offers are put in place, for a specific period of time with pre-qualified suppliers who have met the technical criteria, and include set terms and conditions, which cannot be further negotiated.

Standing offers save the Government time and money, as a separate process does not need to be conducted for each purchase and prices are often reduced due to volume discounts.  The Government is not obliged to purchase any goods or services until a need arises, at which time a contract is put in place.  Items bought through this method of supply include food, fuel, pharmaceutical supplies, spare parts, paper supplies, office equipment, and some professional services.

Supply Arrangements

Supply arrangements, like standing offers, are put in place for goods or services that are purchased on a regular basis from pre-qualified suppliers but the Government is not obliged to purchase any goods or services until a need arises, at which time a contract is put in place.

However, although supply arrangements include some set terms and conditions that will apply to any subsequent contracts, not all are predetermined.  For example, prices, pricing basis or terms and conditions for hazardous waste disposal or cleanup may be further negotiated based on the actual requirement or scope of work.  PWGSC routinely purchases IM/IT professional services using this method of supply.[56]

PWGSC has published a guide for doing business with the Government of Canada.  This guide utilizes a five-step approach for small and medium businesses.[57]

V. Concluding Remarks

Canada has implemented the government procurement provisions of NAFTA and the AGP.  The former does not cover subcentral entities and Canada has not yet added any provinces to Annex II of the latter so as to bind the provinces to it on a reciprocal basis.  However, Canada and the United States have reportedly reached a deal that could change this situation.  On the federal level, Canada has followed the legal requirements respecting federal government procurement, and the exceptions and exemptions its laws allow for are those contained in Canada’s two major international trade agreements.  Canada does not have a “Buy Canada” Act.  Federal government procurement is generally handled by PWGSC.  Exceptions exist for departmental purchases of goods valued at less than Can$5000 and purchases of services.

The major issue in government procurement in Canada today arises out of the inclusion of “Buy American” provisions contained in the ARRA.  Because provincial and municipal procurement is not covered by NAFTA and Canada did not add any provinces to Annex II of the AGP, it was not initially given a waiver from the “Buy American” provisions of the ARRA.  The Government of Canada has been seeking a waiver for the past eight months, and the National Post and Calgary Herald are two of a number of news organizations that have recently reported that the government’s efforts may soon be successful.[!--empirenews.page--]

Prepared by Stephen F. Clarke
Senior Foreign Law Specialist