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1、加快推进水利工程管理体制改革1 传统水利工程建设管理模式的利弊 水利是农业的命脉。作为“国脉”所系,水利建设自古以来都是国家或者政府投资兴建的,并一直延续到现在。因为其公益性,国家便成为投资主体。新中国成立以后,水利建设项目往往由项目单位临时组建机构来进行,国家或者政府缺乏监督和管理,使得公共利益得不到保证。 在这种水利建设管理体制下,项目建设单位的职能不清,出现“既当运动员又当裁判员”的现象。当前,我国实行项目法人责任制,是以业主负责制、招标承包制和建设监理制三项制度为标准制度。在建设过程中,由于缺乏制约或者缺少自律,建设单位常常为了获取更多的利益,将利益的天平向自己倾斜,擅自扩大建设规模,
2、不断增大项目投资额度,使有限的建设资金得到浪费,水利项目建设难以顺利进行。为了解决这些问题,人们从管理体制的办法上寻找答案。一是理清职责,实行政企分离,避免交叉和重叠。政府部门的任务是宏观决策和加强监管,水利建设施工企业则从事具体的建设事务,各负其责,避免了职责不清。二是在制度设计方面进行严密科学地考虑,防止制度缺失,造成跑冒滴漏现象的发生。可以说,我国当前水利建设管理体制改革正是围绕这些方面进行,然而它各有利弊,其长处在于这种管理模式曾发挥了很大作用,特别是在计划经济时期,利大于弊。其弊端是投入、产出和分配的关系不明,当工程质量、投资和建设工期出现问题时,很难追究和明确责任。改革开放以后,特
3、别是近二十年来,水利建设管理体制进行改革,其宗旨是:实行政企分离体制,明确产权关系,水利建设单位或者企业改制成为独立法人,项目法人责任制建设管理模式逐渐形成,并延续至今。项目法人责任制确立了投资方在整个项目建设过程中的主导地位,由此推出业主负责制、招标承包制和建设监理制为标准制度。新制度的实施,顺应了我国水利工程建设的需要,促进了水利基本建设的发展,为改革开放以来水利建设的超常规发展起到了不可估量的作用。 2 水利工程建设管理中的问题成因 水利工程建设中问题的出现既有制度上的缺乏,也有监管上的缺失,体现在具体的建设中表现为以下几个方面: 2.1 招投标管理中的问题 招投标制度是我国不断完善,有
4、利于工程建设的一项制度,它从第一道关口把住了工程建设中以权谋私、暗箱操作等问题。但是,在实际工作中一些工程在招投标中,让那些没有资质或低资质的单位代理招投标,这有悖于招投标的初衷,因此一些低资质或无资质设计、施工、监理队伍混了进来,参与工程建设,其后果可想而知。既然工程存在转包和违法分包,必然出现工程建设“层层扒皮”现象。在施工中,“你好、我好、大家好”,即使不按照设计施工,监理也睁一只眼闭一只眼,因为大家都在一个屋檐下,“运动员”、“教练员”、“裁判员”等都出自一家,大家都是一个家长。同时,项目法人责任制落实不到位也是一项重要原因。作为核心制度,项目法人责任制执行过程中偏差较大。在实际工程建
5、设中,一些项目法人组建过程中不规范,因为行政管理体制原因,有的甚至根本没有组建项目法人,造成责任不明,随之而来暴露出“先上车后买票”、“拍胸脯工程”、“献礼工程”等一系列问题。 2.2 质量监管的问题 因为同在一个屋檐下,监理队伍作用的发挥就会大打折扣。监理人员数量不足,业务素质参差不齐,部分人员无证仍然上岗。继而造成恶性循环,表现在:监理工作不到位,对质量问题熟视无睹;为套取水利建设资金,甚至作假账,欺骗主管部门。 2.3 工程验收工作不认真,敷衍了事,虎头蛇尾 每项工程都设置监督检查,因为体制不顺造成质量检测力度不够,稽察的影响力有限,作为能力不够。与此同时,由于招投标形同虚设,工程多次被
6、转包、分包,层层扒皮,层层收取管理费,造成项目资金跑冒滴漏,最终导致施工单位偷工减料,为项目工程安全埋下隐患,也为工程领域里的腐败打下伏笔。 3 解决水利工程建设管理问题的建议 3.1 严格执行项目法人制度 目前我国实行的项目法人制度是比较科学的管理制度,必须要严格执行,不能走样,也不能成为摆设。要加强对项目法人条件和要素的管理,不折不扣地坚持这项制度,建立对项目法人建设行为的考核管理制度,进一步规范和约束项目法人的行为。同时,建立健全科学严密的招投标运行机制和监督机制,可以聘请纪检、监察和检察部门联合办公监督机制,对招投标过程实行全方位监督,确保项目法人制和招投标制度得到落实。 3.2 提高
7、监理人员准入门槛,不断推进监理制度改革 之所以建立工程监理制度,是因为需要有人代表项目单位对工程质量、工期、投资进行有效控制,从而提高施工单位建设水平,保证工程质量,工程监理就是担负这一职责。为改变过去那种有名无实的监理制度,就要积极推进水利工程建设监理单位体制改革,引入竞争激励机制,实行综合改革,不断增加监理企业活力,达到巩固和提高的目的。 3.3 建立和健全工程设计审查制度,提高工程质量 国家先后出台了一系列勘察设计的有关条例及规范,我们要在实际工作中严格按照这些要求进行操作,并贯穿整个设计工作的始终。同时提高设计人员的准入门槛,对于那些滥竽充数的人员坚决调离,保证水利工程设计人员整体素质
8、和质量。建立施工图纸的会审制度,单位一把手要亲自抓、负总责,对于一旦定下来的图纸必须坚持按图纸施工,决不允许随便变更设计图纸,谁违反就追究谁的责任,也可设立图纸设计终身制,倒逼责任者。注重发挥质量监督的作用,质监部门在日常工作中,要加强质监队伍的建设,加强培训,提高监督能力。在水利工程建设过程中,创新监督机制,严格依法加强监督,实行质量监督终身制,保证在质量这个环节不出问题。 tGZ7R4I30kA1DkaGhn3XtKknBYCUDxqA7FHYi2CHhI92tgKQcWA3PtGshLs50cLmTWN60eo8Wgqv7XAv2OHUm32WGeaUwYDIAWGMeR4I30kA1D
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