“十八大”以(yi)來(lai)，國務院對(dui)(dui)檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認證(zheng)機(ji)構(gou)(gou)改革和(he)職能轉變提(ti)出了要求：“整合(he)業(ye)(ye)務相同(tong)(tong)或相近(jin)的(de)檢(jian)(jian)(jian)驗、檢(jian)(jian)(jian)測(ce)、認證(zheng)機(ji)構(gou)(gou)，解決(jue)這(zhe)些機(ji)構(gou)(gou)過于分(fen)散、活力不強的(de)問(wen)題”，中(zhong)央編辦會同(tong)(tong)國家(jia)質(zhi)檢(jian)(jian)(jian)總局等11個(ge)部(bu)門成立(li)工(gong)作(zuo)組，推動我(wo)國檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認證(zheng)機(ji)構(gou)(gou)整合(he)工(gong)作(zuo)。本文對(dui)(dui)我(wo)國當(dang)前檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認證(zheng)行業(ye)(ye)的(de)資源概況進行分(fen)析，對(dui)(dui)近(jin)年(nian)來(lai)質(zhi)檢(jian)(jian)(jian)系統檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認證(zheng)機(ji)構(gou)(gou)整合(he)工(gong)作(zuo)取(qu)得的(de)成績進行了總結，梳理并分(fen)析了當(dang)前整合(he)工(gong)作(zuo)存在的(de)問(wen)題，同(tong)(tong)時有(you)針(zhen)對(dui)(dui)性地(di)提(ti)出了意見和(he)建議。

1我國檢(jian)驗檢(jian)測認證行業概況

根據統計調查，截(jie)止 2015 年(nian)底，我國共(gong)有(you)各(ge)(ge)類檢(jian)驗(yan)檢(jian)測機(ji)構31122家(jia)，2015全(quan)年(nian)全(quan)行業(ye)(ye)共(gong)實現營(ying)業(ye)(ye)收入1799.98 億(yi)元，向(xiang)社會出具檢(jian)驗(yan)檢(jian)測報告3.29億(yi)份，全(quan)行業(ye)(ye)共(gong)有(you)從業(ye)(ye)人員945073人，共(gong)擁有(you)各(ge)(ge)類儀器(qi)設備4463801臺套，全(quan)部(bu)儀器(qi)設備資產原值3017.59億(yi)元，實驗(yan)室面積(ji)5369.15萬平方(fang)米。

截止2016年6月，我國共有認證機構255家，累計頒發有效認證證書150余萬張、獲證企業合計60余萬家；根據認證對象劃分，可以分為管理體系認證機構、產品認證機構和服務認證機構，其中，從事管理體系認證的機構有170余家，業務范圍包括了ISO9001、ISO14001、ISO

45001、ISO27000認證等；從事產(chan)(chan)(chan)(chan)品(pin)認(ren)證(zheng)的機構(gou)105家(jia)，業(ye)務(wu)范圍(wei)包括強制性(xing)產(chan)(chan)(chan)(chan)品(pin)認(ren)證(zheng)機構(gou)22家(jia)，自愿性(xing)工業(ye)產(chan)(chan)(chan)(chan)品(pin)認(ren)證(zheng)機構(gou)108家(jia)，以及有機產(chan)(chan)(chan)(chan)品(pin)、綠色產(chan)(chan)(chan)(chan)品(pin)、無公(gong)害產(chan)(chan)(chan)(chan)品(pin)認(ren)證(zheng)機構(gou)61家(jia)；從事服務(wu)認(ren)證(zheng)的機構(gou)33家(jia)。

2我國檢驗檢測行業的特點

——行業保持(chi)高(gao)速發展，國有屬性機構(gou)占比高(gao)

2015年各類第三方檢驗檢測機(ji)構(gou)31122家(jia)(jia)，數量較(jiao)2014年增加2782家(jia)(jia)；共(gong)計1629家(jia)(jia)機(ji)構(gou)獲得(de)了(le)(le)高新技術(shu)企業(ye)認定。近(jin)三年的行業(ye)營(ying)業(ye)收入變化趨勢如圖(tu)1所示，我國檢驗檢測行業(ye)繼續保(bao)持了(le)(le)高速增長(chang)(chang)規模，較(jiao)2014年度(du)增長(chang)(chang)了(le)(le)10.37%，超(chao)過了(le)(le)國際檢驗檢測認證(zheng)行業(ye)增長(chang)(chang)水平。

從檢(jian)驗檢(jian)測機(ji)(ji)(ji)構(gou)(gou)(gou)資(zi)產屬性來(lai)看(kan)，如圖2所示，國有(you)(you)及(ji)國有(you)(you)控股機(ji)(ji)(ji)構(gou)(gou)(gou)16732家，占機(ji)(ji)(ji)構(gou)(gou)(gou)總量(liang)(liang)比(bi)重為(wei)(wei)53.76%；集體(ti)控股機(ji)(ji)(ji)構(gou)(gou)(gou)893家，占機(ji)(ji)(ji)構(gou)(gou)(gou)總量(liang)(liang)比(bi)重為(wei)(wei) 2.87%；私營企業11611家，占機(ji)(ji)(ji)構(gou)(gou)(gou)總量(liang)(liang)比(bi)重為(wei)(wei)37.3%；港(gang)澳臺及(ji)外商投資(zi)企業187家，占機(ji)(ji)(ji)構(gou)(gou)(gou)總量(liang)(liang)比(bi)重為(wei)(wei)0.6%；其他1699家，占機(ji)(ji)(ji)構(gou)(gou)(gou)總量(liang)(liang)比(bi)重為(wei)(wei)5.46%。由(you)此(ci)可見(jian)，我國檢(jian)驗檢(jian)測行業仍以國有(you)(you)機(ji)(ji)(ji)構(gou)(gou)(gou)為(wei)(wei)主。

——從業機構以小、微(wei)型機構為主體

從(cong)(cong)(cong)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)構的(de)(de)(de)從(cong)(cong)(cong)業(ye)人(ren)數數量上看，如(ru)圖(tu)3所示(shi)，2015年(nian)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)構從(cong)(cong)(cong)業(ye)人(ren)數在300以(yi)上的(de)(de)(de)大(da)型(xing)(xing)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)構共(gong)有(you)158家(jia) ，占(zhan)行(xing)業(ye)總(zong)量的(de)(de)(de)0.51%；從(cong)(cong)(cong)業(ye)人(ren)數100以(yi)上不滿300人(ren)的(de)(de)(de)中型(xing)(xing)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)構共(gong)有(you)1031家(jia)，占(zhan)行(xing)業(ye)總(zong)量的(de)(de)(de)3.31%；從(cong)(cong)(cong)業(ye)人(ren)數10至100人(ren)的(de)(de)(de)小型(xing)(xing)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)構共(gong)有(you)25071家(jia)，占(zhan)行(xing)業(ye)總(zong)量的(de)(de)(de)80.56%；從(cong)(cong)(cong)業(ye)人(ren)數不滿10人(ren)的(de)(de)(de)微(wei)型(xing)(xing)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)構有(you)4862家(jia)，占(zhan)行(xing)業(ye)總(zong)量的(de)(de)(de)15.62%。由此可見(jian)，目前(qian)我國檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)行(xing)業(ye)規模分布(bu)呈金字(zi)塔狀，小型(xing)(xing)、微(wei)型(xing)(xing)檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)關(guan)占(zhan)據行(xing)業(ye)的(de)(de)(de)主體。（注：參照(zhao)國家(jia)統計局《關(guan)于印發統計上大(da)中小微(wei)型(xing)(xing)企業(ye)劃分辦法的(de)(de)(de)通(tong)知》上對(dui)大(da)中小微(wei)型(xing)(xing)企業(ye)的(de)(de)(de)劃分。）

——地(di)域分布不均，與(yu)當(dang)地(di)經濟(ji)發(fa)展水平(ping)成正(zheng)比

2015年(nian)我國(guo)(guo)檢驗檢測(ce)機(ji)構(gou)(gou)(gou)數(shu)(shu)量排(pai)在前十位的省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（自治區(qu)、直轄(xia)市，不(bu)包(bao)括港澳臺地區(qu)）依次為山東省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（2198 家(jia)(jia)(jia)(jia)）、廣東省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（2037 家(jia)(jia)(jia)(jia)）、河(he)南省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1742 家(jia)(jia)(jia)(jia)）、河(he)北省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1645 家(jia)(jia)(jia)(jia)）、江蘇省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1616家(jia)(jia)(jia)(jia)）、浙(zhe)江省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1590家(jia)(jia)(jia)(jia)）、四川省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1337家(jia)(jia)(jia)(jia)）、遼寧省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1332家(jia)(jia)(jia)(jia)）、湖南省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1263家(jia)(jia)(jia)(jia)）、湖北省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)（1194家(jia)(jia)(jia)(jia)）；排(pai)前10位的省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(區(qu)、市)檢驗檢測(ce)機(ji)構(gou)(gou)(gou)數(shu)(shu)量占全國(guo)(guo)總量的51.26%；如圖4所示(shi)，我國(guo)(guo)檢驗檢測(ce)機(ji)構(gou)(gou)(gou)區(qu)域分布存在分散和不(bu)均衡(heng)的特(te)點，沿海發達(da)省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)份的機(ji)構(gou)(gou)(gou)數(shu)(shu)量遠高于中西部(bu)和內陸省(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)(sheng)份。

不同省(sheng)(sheng)份檢(jian)(jian)驗檢(jian)(jian)測機構的(de)年都營業收入情況見(jian)圖5，總額居前10位的(de)省(sheng)(sheng)市依次為(wei)廣(guang)東、上(shang)海(hai)、江蘇、北京(jing)、浙江、山東、四川、湖北、天津、河南(nan)。各地區檢(jian)(jian)驗檢(jian)(jian)測行業收入與各地區的(de)國民(min)生產(chan)總值(zhi)（GDP）基本成正比，存(cun)在明(ming)顯(xian)的(de)區域發展不均衡特點(dian)。

3我國檢驗檢測認證行業的發展定位(wei)

近年(nian)來，國(guo)家(jia)先后(hou)將(jiang)檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)行業(ye)(ye)(ye)定位(wei)為“高(gao)(gao)技(ji)(ji)術(shu)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)、科(ke)(ke)技(ji)(ji)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)和生(sheng)(sheng)產(chan)性(xing)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)”。2011年(nian)12月(yue)，國(guo)務(wu)(wu)(wu)(wu)(wu)(wu)院印發(fa)(fa)(fa)(fa)(fa)(fa)了《關(guan)于(yu)加(jia)快(kuai)(kuai)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)高(gao)(gao)技(ji)(ji)術(shu)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)的(de)(de)指導(dao)意(yi)(yi)見(jian)》，《意(yi)(yi)見(jian)》中明確將(jiang)“檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)”列為國(guo)家(jia)重(zhong)(zhong)(zhong)點(dian)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)的(de)(de)八(ba)個高(gao)(gao)技(ji)(ji)術(shu)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)領域之(zhi)一(yi)(yi)，提(ti)出了發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)、檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)、檢(jian)(jian)(jian)(jian)(jian)(jian)疫(yi)、計(ji)量(liang)(liang)、認(ren)(ren)(ren)可技(ji)(ji)術(shu)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)，實施技(ji)(ji)術(shu)標(biao)準(zhun)戰略(lve)，加(jia)強測(ce)(ce)(ce)(ce)(ce)(ce)試技(ji)(ji)術(shu)和方法等(deng)(deng)(deng)基礎(chu)能(neng)力(li)(li)(li)研(yan)究，建(jian)設(she)戰略(lve)性(xing)新興產(chan)業(ye)(ye)(ye)等(deng)(deng)(deng)重(zhong)(zhong)(zhong)點(dian)行業(ye)(ye)(ye)產(chan)品質(zhi)量(liang)(liang)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)體(ti)系等(deng)(deng)(deng)重(zhong)(zhong)(zhong)點(dian)任(ren)務(wu)(wu)(wu)(wu)(wu)(wu)；并提(ti)出：推進檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)機(ji)構市(shi)場化運營，提(ti)升(sheng)專業(ye)(ye)(ye)化服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)水平。2014年(nian)8月(yue)，《國(guo)務(wu)(wu)(wu)(wu)(wu)(wu)院關(guan)于(yu)加(jia)快(kuai)(kuai)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)生(sheng)(sheng)產(chan)性(xing)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye) 促(cu)進產(chan)業(ye)(ye)(ye)結構調整升(sheng)級的(de)(de)指導(dao)意(yi)(yi)見(jian)》（國(guo)發(fa)(fa)(fa)(fa)(fa)(fa)〔2014〕26號(hao)）將(jiang)“檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)”列為重(zhong)(zhong)(zhong)點(dian)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)的(de)(de)11項(xiang)生(sheng)(sheng)產(chan)性(xing)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)之(zhi)一(yi)(yi)，發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)任(ren)務(wu)(wu)(wu)(wu)(wu)(wu)包括：加(jia)快(kuai)(kuai)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)第三方檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)，鼓勵不(bu)同所有制檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)機(ji)構平等(deng)(deng)(deng)參與市(shi)場競(jing)爭，不(bu)斷增強權威性(xing)和公信力(li)(li)(li)，為提(ti)高(gao)(gao)產(chan)品質(zhi)量(liang)(liang)提(ti)供有力(li)(li)(li)的(de)(de)支持保障服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)；加(jia)強計(ji)量(liang)(liang)、檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)技(ji)(ji)術(shu)、檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)裝備研(yan)發(fa)(fa)(fa)(fa)(fa)(fa)等(deng)(deng)(deng)基礎(chu)能(neng)力(li)(li)(li)建(jian)設(she)，發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)面向涉及開發(fa)(fa)(fa)(fa)(fa)(fa)、生(sheng)(sheng)產(chan)制造、售后(hou)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)全過程的(de)(de)分析、測(ce)(ce)(ce)(ce)(ce)(ce)試、計(ji)量(liang)(liang)、檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)等(deng)(deng)(deng)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)；優化資源配置，引導(dao)檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)機(ji)構集聚發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)，推進整合業(ye)(ye)(ye)務(wu)(wu)(wu)(wu)(wu)(wu)相同或相近的(de)(de)檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)機(ji)構等(deng)(deng)(deng)。2014年(nian)10月(yue)，《國(guo)務(wu)(wu)(wu)(wu)(wu)(wu)院關(guan)于(yu)加(jia)快(kuai)(kuai)科(ke)(ke)技(ji)(ji)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)的(de)(de)若(ruo)干意(yi)(yi)見(jian)》（國(guo)發(fa)(fa)(fa)(fa)(fa)(fa)〔2014〕49號(hao)），再次(ci)將(jiang)“檢(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)”列為重(zhong)(zhong)(zhong)點(dian)發(fa)(fa)(fa)(fa)(fa)(fa)展(zhan)(zhan)的(de)(de)八(ba)項(xiang)科(ke)(ke)技(ji)(ji)服(fu)(fu)(fu)(fu)(fu)務(wu)(wu)(wu)(wu)(wu)(wu)業(ye)(ye)(ye)之(zhi)一(yi)(yi)。

4檢驗檢測認證機(ji)構(gou)整合的背(bei)景

2013年(nian)3月(yue)，國(guo)務(wu)(wu)院機(ji)構(gou)(gou)(gou)改革(ge)和職(zhi)能轉變(bian)方(fang)案要(yao)求:“整(zheng)合(he)(he)(he)業(ye)(ye)務(wu)(wu)相(xiang)同(tong)或相(xiang)近的(de)檢(jian)(jian)(jian)驗(yan)、檢(jian)(jian)(jian)測(ce)(ce)(ce)、認證機(ji)構(gou)(gou)(gou)，解(jie)決這些機(ji)構(gou)(gou)(gou)過于(yu)分(fen)散、活力不強的(de)問題。”中(zhong)央編(bian)辦會同(tong)質檢(jian)(jian)(jian)總局等11個(ge)部(bu)門(men)成立工(gong)作(zuo)組，積極推(tui)動(dong)檢(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)測(ce)(ce)(ce)認證機(ji)構(gou)(gou)(gou)整(zheng)合(he)(he)(he)工(gong)作(zuo)。2014年(nian)2月(yue)，國(guo)務(wu)(wu)院辦公廳印(yin)發《關(guan)于(yu)整(zheng)合(he)(he)(he)檢(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)測(ce)(ce)(ce)認證機(ji)構(gou)(gou)(gou)實施(shi)意見(jian)的(de)通知》（國(guo)辦發〔2014〕8號），明確了整(zheng)合(he)(he)(he)工(gong)作(zuo)總體思路和具(ju)體措施(shi)。提出(chu)重(zhong)點(dian)任務(wu)(wu)：一是(shi)結合(he)(he)(he)分(fen)類(lei)推(tui)進事業(ye)(ye)單位(wei)改革(ge)，明確檢(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)測(ce)(ce)(ce)認證機(ji)構(gou)(gou)(gou)功能定位(wei)，推(tui)進部(bu)門(men)或行(xing)業(ye)(ye)內部(bu)整(zheng)合(he)(he)(he)；二是(shi)推(tui)進具(ju)備條件的(de)檢(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)測(ce)(ce)(ce)認證機(ji)構(gou)(gou)(gou)與行(xing)政部(bu)門(men)脫鉤、轉企改制；三是(shi)推(tui)進跨部(bu)門(men)、跨行(xing)業(ye)(ye)、跨層級整(zheng)合(he)(he)(he)，支持鼓(gu)勵并購重(zhong)組，做強做大。

5檢(jian)驗檢(jian)測認證機(ji)構(gou)整合(he)取得的成績(ji)

—— 注重頂層設計(ji)，印(yin)發指導意見，明確(que)了整合方向

2015年(nian)3月，國家(jia)質檢總(zong)局印發《全國質檢系統檢驗檢測(ce)認(ren)證機構整合(he)(he)指導意(yi)見(jian)》（國質檢科〔2015〕86號，以下簡稱為《意(yi)見(jian)》）。《意(yi)見(jian)》中(zhong)明(ming)確了整合(he)(he)的基本原則、工(gong)作目標、整合(he)(he)路徑和整合(he)(he)模式。

《意(yi)見》在(zai)“整合(he)原則(ze)”中(zhong)提出，要結合(he)事業單位(wei)(wei)分(fen)類改(gai)(gai)革，按照職能(neng)定位(wei)(wei)，把(ba)檢(jian)(jian)驗檢(jian)(jian)測認(ren)證(zheng)機構(gou)(gou)分(fen)為公益類檢(jian)(jian)驗檢(jian)(jian)測認(ren)證(zheng)機構(gou)(gou)和經營類檢(jian)(jian)驗檢(jian)(jian)測認(ren)證(zheng)機構(gou)(gou)兩類，進(jin)行分(fen)類整合(he)。在(zai)此(ci)基(ji)礎上，推(tui)進(jin)經營類檢(jian)(jian)驗檢(jian)(jian)測認(ren)證(zheng)機構(gou)(gou)轉企改(gai)(gai)制(zhi)。檢(jian)(jian)驗檢(jian)(jian)測認(ren)證(zheng)機構(gou)(gou)轉企改(gai)(gai)制(zhi)后逐步與(yu)政府主管(guan)部(bu)門脫鉤。

《意見》在“工作目標”中要(yao)求，到(dao)(dao)2015年(nian)(nian)，質(zhi)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)總局(ju)直(zhi)屬檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)和出入境檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)疫系(xi)統相關(guan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)整(zheng)(zheng)合基本(ben)完(wan)成(cheng)(cheng)(cheng)，特種設備檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測機(ji)(ji)構(gou)(gou)(gou)縱向整(zheng)(zheng)合試點成(cheng)(cheng)(cheng)效明顯；到(dao)(dao)2017年(nian)(nian)，質(zhi)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)系(xi)統檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)整(zheng)(zheng)合基本(ben)完(wan)成(cheng)(cheng)(cheng)。公益類(lei)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)職責(ze)清晰(xi)、保(bao)障有力，經(jing)營(ying)類(lei)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)轉(zhuan)企(qi)改制基本(ben)到(dao)(dao)位(wei)；到(dao)(dao)2020年(nian)(nian)，基本(ben)完(wan)成(cheng)(cheng)(cheng)質(zhi)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)系(xi)統檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)政事分開、管辦分離(li)、轉(zhuan)企(qi)改制等改革任務(wu)，經(jing)營(ying)類(lei)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)機(ji)(ji)構(gou)(gou)(gou)專業化(hua)提升、規模化(hua)整(zheng)(zheng)合、市(shi)場化(hua)運(yun)營(ying)、國際化(hua)發展取(qu)得顯著成(cheng)(cheng)(cheng)效，形成(cheng)(cheng)(cheng)一批具有知名品(pin)牌的綜合性(xing)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)(jian)(jian)(jian)測認證(zheng)集團(tuan)。

——清理政策法(fa)規，推進簡政放權(quan)

國(guo)家(jia)質(zhi)檢(jian)總局(ju)、國(guo)家(jia)法(fa)(fa)制辦、中央編(bian)辦聯合下發通(tong)知，對(dui)檢(jian)驗檢(jian)測認(ren)證行業開展政策法(fa)(fa)規(gui)(gui)清理，梳理了涉及檢(jian)驗檢(jian)測認(ren)證的(de)(de)相關法(fa)(fa)律(lv)21部(bu)、行政法(fa)(fa)規(gui)(gui)38部(bu)、部(bu)門規(gui)(gui)章71部(bu)、規(gui)(gui)范性文(wen)件(jian)(jian)(jian)226件(jian)(jian)(jian)；至2015年底，已有7部(bu)法(fa)(fa)律(lv)法(fa)(fa)規(gui)(gui)在修訂，建議修訂、廢(fei)止的(de)(de)部(bu)門規(gui)(gui)章29部(bu)，建議修改、廢(fei)止的(de)(de)規(gui)(gui)范性文(wen)件(jian)(jian)(jian)99件(jian)(jian)(jian)；2015年國(guo)家(jia)質(zhi)檢(jian)總局(ju)出臺了《檢(jian)驗檢(jian)測機(ji)構資質(zhi)認(ren)定管理辦法(fa)(fa)》（163號令），并積極推進《中華人民共和國(guo)計(ji)量法(fa)(fa)》修訂和《檢(jian)驗檢(jian)測機(ji)構管理條例》立法(fa)(fa)工作。

國家(jia)(jia)質(zhi)檢(jian)(jian)總(zong)局和國家(jia)(jia)認(ren)(ren)監(jian)委(wei)還(huan)大力推進檢(jian)(jian)驗(yan)檢(jian)(jian)測(ce)(ce)行業資(zi)質(zhi)審批簡(jian)政放(fang)權，擬取消產品(pin)質(zhi)量(liang)檢(jian)(jian)驗(yan)機構審查認(ren)(ren)可制度(du)，將(jiang)檢(jian)(jian)驗(yan)檢(jian)(jian)測(ce)(ce)機構資(zi)質(zhi)認(ren)(ren)定和計量(liang)認(ren)(ren)證兩項審批制度(du)合并為資(zi)質(zhi)認(ren)(ren)定一(yi)項，并放(fang)寬(kuan)了對申請主體的要求，將(jiang)資(zi)質(zhi)證書有效期從3年延長為6年，最大程度(du)激發了檢(jian)(jian)驗(yan)檢(jian)(jian)測(ce)(ce)市(shi)場活力。

——重點(dian)和試(shi)點(dian)整合工程任(ren)務取得的階(jie)段性成果

2014年11月，由中國(guo)特(te)(te)檢(jian)(jian)(jian)(jian)院牽(qian)頭，7家地方特(te)(te)檢(jian)(jian)(jian)(jian)機構參(can)與(yu)，以資(zi)(zi)產(chan)為紐(niu)帶，按照母子公(gong)司架構，成(cheng)立了(le)(le)“中國(guo)特(te)(te)種設備檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)測集(ji)團(tuan)”，建立完善的(de)法人(ren)治理結構和現代企(qi)業(ye)制度(du)，將各出資(zi)(zi)方的(de)檢(jian)(jian)(jian)(jian)驗(yan)資(zi)(zi)質(zhi)和檢(jian)(jian)(jian)(jian)驗(yan)業(ye)務(wu)(wu)全部轉入集(ji)團(tuan)，實現品牌(pai)、資(zi)(zi)質(zhi)、質(zhi)量體(ti)系和重大業(ye)務(wu)(wu)的(de)統一；截至目前(qian)，該集(ji)團(tuan)已(yi)陸續有15家特(te)(te)檢(jian)(jian)(jian)(jian)機構加入。同(tong)時，江(jiang)蘇、湖北、廣西已(yi)經完成(cheng)了(le)(le)省(sheng)內特(te)(te)種設備檢(jian)(jian)(jian)(jian)驗(yan)機構縱向整(zheng)合，河南、甘肅(su)、湖南、福(fu)建等省(sheng)印發了(le)(le)省(sheng)內特(te)(te)設檢(jian)(jian)(jian)(jian)驗(yan)機構縱向整(zheng)合方案。此外，中國(guo)質(zhi)量認(ren)證中心(xin)及直屬檢(jian)(jian)(jian)(jian)驗(yan)檢(jian)(jian)(jian)(jian)疫(yi)局所屬的(de)31家評(ping)審中心(xin)擬(ni)整(zheng)體(ti)轉企(qi)改(gai)制并入中國(guo)檢(jian)(jian)(jian)(jian)驗(yan)認(ren)證集(ji)團(tuan)，目前(qian)已(yi)經形成(cheng)方案并報中央，等待批復。

——各地質檢部門進行了有(you)益的整合和改革探索

河北、甘肅、陜西等(deng)地出臺了整(zheng)合(he)指導意見(jian)。浙(zhe)江、貴州、江蘇等(deng)地印(yin)發了關于(yu)促進檢(jian)(jian)驗(yan)檢(jian)(jian)測認證服務(wu)業發展的意見(jian)。按照(zhao)總(zong)局(ju)《意見(jian)》中建議的整(zheng)合(he)模式(shi)，各地質(zhi)檢(jian)(jian)系統也紛進行了不同模式(shi)的整(zheng)合(he)探索(suo)：

行政劃撥方式(shi)整合(he)(he)(he)。如2014年4月，湖(hu)北省特(te)(te)種(zhong)設備檢(jian)(jian)驗檢(jian)(jian)測機構整合(he)(he)(he)，將原湖(hu)北省特(te)(te)檢(jian)(jian)院(yuan)(yuan)和15家地市特(te)(te)檢(jian)(jian)機構（武漢市除外）整合(he)(he)(he)為湖(hu)北特(te)(te)種(zhong)設備檢(jian)(jian)驗檢(jian)(jian)測研究院(yuan)(yuan)，下轄黃石(shi)等15個分(fen)院(yuan)(yuan)。主要(yao)特(te)(te)點是徹(che)底(di)整合(he)(he)(he)，實現統一管理。各分(fen)院(yuan)(yuan)人員、財務、資(zi)(zi)產、機構、業務全部整合(he)(he)(he)并(bing)入湖(hu)北特(te)(te)檢(jian)(jian)院(yuan)(yuan)，不(bu)再(zai)保留獨立(li)的事業法人資(zi)(zi)格。

授權經營方式整合(he)。如江蘇(su)省(sheng)在2005年(nian)整合(he)全省(sheng)95家特檢機構的(de)基(ji)礎上，2015年(nian)4月，江蘇(su)省(sheng)特檢院申請作為(wei)出資人(ren)投資2000萬元，組建江蘇(su)省(sheng)特檢科技有限責任公(gong)司(si)，開(kai)始(shi)向市場轉型探索。

拆分歸并(bing)方式整合(he)。如2016年2月29日，廣(guang)州(zhou)市召開市政府常務會議(yi)，審議(yi)并(bing)原則通過《廣(guang)州(zhou)檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測認證(zheng)集(ji)團組建方案(an)》。該(gai)方案(an)提出，對(dui)市質監系統相關事(shi)業(ye)單位以商業(ye)性為主體(ti)的檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測認證(zheng)資(zi)(zi)源進行(xing)整合(he)，組建廣(guang)州(zhou)檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測認證(zheng)集(ji)團。其次(ci)，進行(xing)跨部門、跨行(xing)業(ye)、跨地(di)區(qu)的檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測認證(zheng)資(zi)(zi)源整合(he)，力爭3至5年內(nei)該(gai)集(ji)團發揮品牌效應(ying)，實現(xian)規模化發展。

 公(gong)共平(ping)臺方(fang)式(shi)整合(he)。如2014年11月，由中國特檢(jian)院(yuan)牽(qian)頭，7家地方(fang)特檢(jian)機構參與，以資產為(wei)紐帶，按照母子(zi)公(gong)司架(jia)構，成立(li)中國特種設備檢(jian)驗(yan)檢(jian)測集團，建立(li)完(wan)善的(de)法人(ren)治理結(jie)構和(he)現代(dai)企業(ye)(ye)制度，將各(ge)出資方(fang)的(de)檢(jian)驗(yan)資質(zhi)(zhi)和(he)檢(jian)驗(yan)業(ye)(ye)務(wu)(wu)全部轉入集團，實現品(pin)牌(pai)、資質(zhi)(zhi)、質(zhi)(zhi)量(liang)體系和(he)重(zhong)大業(ye)(ye)務(wu)(wu)的(de)統一。

整體改(gai)制方式整合。如2015年1月浙(zhe)江海鹽質監所(suo)完成公(gong)(gong)司股權(quan)結構(gou)變(bian)更，引(yin)入社會投資，并整合收購兩家(jia)檢(jian)(jian)(jian)測公(gong)(gong)司；2016年3月，山東(dong)省質量技術監督局(ju)出(chu)臺《山東(dong)省特(te)(te)種設備檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測機構(gou)整合改(gai)革實施方案（征求意見稿(gao)）》，擬對(dui)全省特(te)(te)檢(jian)(jian)(jian)機構(gou)實施整合，整體轉(zhuan)(zhuan)企(qi)改(gai)制，成立齊魯特(te)(te)種設備檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測集(ji)團有(you)限公(gong)(gong)司，不(bu)設公(gong)(gong)益(yi)(yi)機構(gou)，檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測公(gong)(gong)益(yi)(yi)服務(wu)以政府購買服務(wu)方式實現；深圳市計(ji)量質量檢(jian)(jian)(jian)測研究院提(ti)出(chu)擬整體轉(zhuan)(zhuan)制為混合所(suo)有(you)制企(qi)業。

6檢(jian)驗檢(jian)測(ce)認證機構整合工作存在的問(wen)題

——思想認識(shi)不足(zu)，整合動力和(he)市場競爭意識(shi)不足(zu)。

多(duo)數基層質(zhi)檢(jian)(jian)(jian)(jian)(jian)部門領(ling)導(dao)、檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)技術機(ji)(ji)(ji)構和從業(ye)人員(yuan)思想(xiang)不(bu)夠開(kai)放，不(bu)夠與時俱進，對當(dang)前我國(guo)(guo)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)認(ren)證機(ji)(ji)(ji)構整(zheng)合和改革工作面臨(lin)的(de)(de)形勢、改革必要(yao)性和緊(jin)迫性了解不(bu)夠，以觀望態度(du)為主。一方面，未能清醒(xing)的(de)(de)認(ren)識到近(jin)年來(lai)機(ji)(ji)(ji)動車安檢(jian)(jian)(jian)(jian)(jian)、建(jian)工檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)、環評、安評、消防(fang)驗(yan)(yan)(yan)收、司(si)法(fa)鑒定(ding)等(deng)領(ling)域檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)機(ji)(ji)(ji)構都已經(jing)基本實現了市(shi)場化運營(ying)以及(ji)與主管政府部門脫鉤(gou)的(de)(de)現實情(qing)況(kuang)。另一方面，市(shi)場競爭意識不(bu)足，缺乏整(zheng)合壓力(li)和危機(ji)(ji)(ji)感。近(jin)年來(lai)，外資機(ji)(ji)(ji)構利用其品牌優勢、技術優勢和國(guo)(guo)際業(ye)務(wu)(wu)客(ke)戶(hu)指(zhi)定(ding)等(deng)優勢，不(bu)多(duo)擴大其在(zai)華(hua)業(ye)務(wu)(wu)份額(e)；同時，民(min)(min)營(ying)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)認(ren)證機(ji)(ji)(ji)構如雨后春筍(sun)般(ban)快(kuai)速發展起(qi)來(lai)，近(jin)幾年有十余家民(min)(min)營(ying)機(ji)(ji)(ji)構先(xian)后在(zai)創業(ye)板、新三(san)板上市(shi)，通過融資實現高速發展。隨(sui)著我國(guo)(guo)產(chan)商(shang)品檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)認(ren)證領(ling)域不(bu)斷開(kai)放和政府購買第三(san)方檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)認(ren)證服務(wu)(wu)的(de)(de)力(li)度(du)加強，質(zhi)檢(jian)(jian)(jian)(jian)(jian)系統檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)認(ren)證機(ji)(ji)(ji)構正面臨(lin)外資、民(min)(min)營(ying)機(ji)(ji)(ji)構的(de)(de)多(duo)維度(du)挑戰，市(shi)場競爭日趨激烈(lie)。

——整(zheng)合實效(xiao)不突出，對整(zheng)合可能引(yin)發的問題準備(bei)不足。

一些(xie)地區的質檢(jian)機(ji)(ji)構(gou)雖(sui)然采取了(le)(le)(le)整(zheng)合(he)措(cuo)施(shi)，但(dan)有(you)些(xie)只是(shi)(shi)在事業單(dan)位(wei)基礎(chu)上加(jia)掛了(le)(le)(le)一塊企(qi)業牌子，或(huo)者是(shi)(shi)名義上對(dui)一些(xie)機(ji)(ji)構(gou)進行了(le)(le)(le)整(zheng)合(he)，但(dan)實際仍是(shi)(shi)各(ge)個(ge)機(ji)(ji)構(gou)各(ge)自為(wei)政，設備設施(shi)、人(ren)員、資(zi)(zi)產(chan)、技術能力、客(ke)戶資(zi)(zi)源(yuan)(yuan)等(deng)都(dou)沒(mei)有(you)實質性整(zheng)合(he)和調(diao)配，未(wei)能形成合(he)力，整(zheng)合(he)效果不(bu)佳。此外，機(ji)(ji)構(gou)整(zheng)合(he)并(bing)不(bu)是(shi)(shi)簡單(dan)的“做加(jia)法”、“多多益善”或(huo)“來(lai)者不(bu)拒”，如果盲目地整(zheng)合(he)一些(xie)同(tong)質資(zi)(zi)源(yuan)(yuan)甚至是(shi)(shi)劣(lie)質資(zi)(zi)源(yuan)(yuan)，很(hen)有(you)可能事倍功半，引發新的矛盾和問題。比如，某中西部省質檢(jian)院整(zheng)合(he)了(le)(le)(le)該(gai)地區的市、縣級質檢(jian)院，雖(sui)然人(ren)員、設備、資(zi)(zi)產(chan)實現了(le)(le)(le)整(zheng)合(he)，但(dan)各(ge)職能部門(men)尾大(da)不(bu)掉，僅司機(ji)(ji)就一百(bai)余人(ren)，其人(ren)工成本(ben)測算竟然占(zhan)到了(le)(le)(le)該(gai)檢(jian)驗檢(jian)測總(zong)成本(ben)的40%；同(tong)時，一些(xie)新整(zheng)合(he)進來(lai)小、散、弱機(ji)(ji)構(gou)業績不(bu)佳，長期處(chu)于虧損，如果不(bu)能及時調(diao)整(zheng)和優(you)化，反而會拖累(lei)整(zheng)個(ge)集團的業績和競(jing)爭力。

——職責定位(wei)不(bu)(bu)清(qing)，存在(zai)事企不(bu)(bu)分、定位(wei)不(bu)(bu)清(qing)和與市場爭利等問題。

多年來，質檢(jian)(jian)系統(tong)檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測(ce)認證(zheng)機(ji)構(gou)作(zuo)為技術執法的保障部(bu)門依附于行政(zheng)(zheng)(zheng)機(ji)關，同(tong)(tong)時承擔著社會(hui)服(fu)務(wu)(wu)(wu)功能(neng)與(yu)某些行政(zheng)(zheng)(zheng)權力(li)。但隨著近年來國(guo)務(wu)(wu)(wu)院推(tui)進簡政(zheng)(zheng)(zheng)放權和政(zheng)(zheng)(zheng)府購買(mai)服(fu)務(wu)(wu)(wu)力(li)度(du)不斷(duan)加(jia)大(da)，當(dang)前質監系統(tong)檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測(ce)認證(zheng)機(ji)構(gou)公(gong)益二(er)類的事(shi)業(ye)(ye)單位屬(shu)性面臨嚴峻挑戰。2016年5月《人民日報》針對制(zhi)度(du)性交(jiao)易成本刊(kan)發了(le)“這(zhe)些成本最該降”的專(zhuan)題報導(dao)，部(bu)分生產企業(ye)(ye)反映了(le)質檢(jian)(jian)系統(tong)檢(jian)(jian)驗(yan)(yan)檢(jian)(jian)測(ce)認證(zheng)機(ji)構(gou)收費(fei)高、技術機(ji)構(gou)利用職(zhi)能(neng)便(bian)利與(yu)企業(ye)(ye)簽署服(fu)務(wu)(wu)(wu)合同(tong)(tong)、技術能(neng)力(li)不足等(deng)問題，引起(qi)了(le)國(guo)務(wu)(wu)(wu)院領導(dao)和質檢(jian)(jian)總局領導(dao)的高度(du)重視(shi)。

同時(shi)，質(zhi)(zhi)檢(jian)(jian)系(xi)統檢(jian)(jian)驗檢(jian)(jian)測(ce)認證機(ji)構(gou)受事業單(dan)位體制(zhi)機(ji)制(zhi)約束(shu)，人才(cai)引進和培養機(ji)制(zhi)、業務績效和考核機(ji)制(zhi)落后，技術能力和科研創新(xin)能力不(bu)足(zu)，市(shi)場拓(tuo)展和市(shi)場服務意(yi)識(shi)淡(dan)薄(bo)，設備設施和檢(jian)(jian)驗檢(jian)(jian)測(ce)能力建設方面存(cun)在(zai)重復投(tou)入，同質(zhi)(zhi)化競爭嚴重，都嚴重制(zhi)約了(le)機(ji)構(gou)的長期發(fa)展。

——質檢(jian)(jian)部門作為檢(jian)(jian)驗檢(jian)(jian)測認證行業的資(zi)質監(jian)(jian)管(guan)部門，對(dui)系(xi)統(tong)內機構的監(jian)(jian)管(guan)和(he)處罰難度大(da)。

目前，認(ren)(ren)(ren)(ren)證(zheng)機構(gou)(gou)的從(cong)業(ye)(ye)(ye)資(zi)(zi)質(zhi)由國家(jia)(jia)認(ren)(ren)(ren)(ren)證(zheng)認(ren)(ren)(ren)(ren)可(ke)監(jian)督(du)(du)管理(li)委員會（以下簡稱國家(jia)(jia)認(ren)(ren)(ren)(ren)監(jian)委）依據《認(ren)(ren)(ren)(ren)證(zheng)認(ren)(ren)(ren)(ren)可(ke)條例》實(shi)施行(xing)政審批；檢(jian)驗(yan)檢(jian)測機構(gou)(gou)的從(cong)業(ye)(ye)(ye)資(zi)(zi)質(zhi)由國家(jia)(jia)認(ren)(ren)(ren)(ren)監(jian)委和各省（區、市）質(zhi)量(liang)(liang)技(ji)術監(jian)督(du)(du)部(bu)(bu)門(men)(men)依據《計量(liang)(liang)法》、《認(ren)(ren)(ren)(ren)證(zheng)認(ren)(ren)(ren)(ren)可(ke)條例》分級實(shi)施資(zi)(zi)質(zhi)認(ren)(ren)(ren)(ren)定行(xing)政許可(ke)，許可(ke)對象包括農業(ye)(ye)(ye)、衛生、公(gong)安、司法、環保、食(shi)藥、高校、檢(jian)驗(yan)檢(jian)疫等所有(you)檢(jian)驗(yan)檢(jian)測領(ling)域。但(dan)是由于各省（區、市）質(zhi)量(liang)(liang)技(ji)術監(jian)督(du)(du)部(bu)(bu)門(men)(men)既是該區域檢(jian)驗(yan)檢(jian)測行(xing)業(ye)(ye)(ye)資(zi)(zi)質(zhi)的監(jian)督(du)(du)管理(li)部(bu)(bu)門(men)(men)，又同時對轄(xia)區內(nei)的質(zhi)檢(jian)系統檢(jian)驗(yan)檢(jian)測認(ren)(ren)(ren)(ren)證(zheng)機構(gou)(gou)具(ju)有(you)業(ye)(ye)(ye)務(wu)管理(li)和指導職(zhi)責，因此在對其(qi)實(shi)施后續(xu)監(jian)督(du)(du)和違法違規行(xing)為(wei)的處罰方面存在矛盾(dun)。

7檢測認證機(ji)構整合工作意(yi)見建議

解放思(si)想(xiang)，實事求是，主動結(jie)合(he)(he)(he)事業(ye)(ye)單位(wei)改(gai)革(ge)，將公益類和(he)經營類檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認(ren)證業(ye)(ye)務進行劃(hua)分。按照國際慣例,建議將計(ji)量(liang)檢(jian)(jian)(jian)定、標(biao)準(zhun)(zhun)化(強(qiang)制(zhi)性標(biao)準(zhun)(zhun))、認(ren)可等業(ye)(ye)務劃(hua)入公益類，將檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)、計(ji)量(liang)校(xiao)準(zhun)(zhun)、認(ren)證、標(biao)準(zhun)(zhun)化服(fu)務（推薦(jian)性標(biao)準(zhun)(zhun)、聯盟標(biao)準(zhun)(zhun)、企業(ye)(ye)標(biao)準(zhun)(zhun)等）、品牌服(fu)務等劃(hua)入經營類服(fu)務。質檢(jian)(jian)(jian)系(xi)統檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認(ren)證機(ji)構(gou)應破除(chu)僵化思(si)想(xiang)和(he)保守觀念，大膽探(tan)索質檢(jian)(jian)(jian)事業(ye)(ye)可持續發展的道路(lu)，積極(ji)推動經營類業(ye)(ye)務與主管政(zheng)府部門盡快脫(tuo)鉤，建議在整(zheng)合(he)(he)(he)和(he)改(gai)革(ge)之初，集(ji)全系(xi)統之力(li),樹立整(zheng)合(he)(he)(he)改(gai)革(ge)的樣板(ban)（模(mo)板(ban)）工程(cheng)。同時(shi)，建議在深圳(zhen)、浙江、廣東(dong)、上海(hai)等沿海(hai)發達地區，選擇市場化業(ye)(ye)務基礎(chu)較(jiao)好(hao)的檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認(ren)證機(ji)構(gou)為試(shi)點，率先(xian)進行混(hun)合(he)(he)(he)所有制(zhi)或(huo)非(fei)贏利(li)組織等不同模(mo)式的整(zheng)合(he)(he)(he)改(gai)革(ge)；建議由總局牽(qian)頭協調地方政(zheng)府，爭取政(zheng)策、資金(jin)、業(ye)(ye)務等方面的支持，給全系(xi)統做出成功整(zheng)合(he)(he)(he)與改(gai)革(ge)的典(dian)范，給質檢(jian)(jian)(jian)系(xi)統檢(jian)(jian)(jian)驗檢(jian)(jian)(jian)測(ce)認(ren)證機(ji)構(gou)和(he)從業(ye)(ye)人員增強(qiang)信心(xin)，激(ji)發整(zheng)合(he)(he)(he)和(he)改(gai)革(ge)動力(li)。

統籌兼顧，將國(guo)家質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)技(ji)(ji)術(shu)(shu)基礎(chu)（NQI）四要素(su)協同(tong)(tong)(tong)整合(he)與(yu)品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)服(fu)務(wu)(wu)(wu)一(yi)(yi)同(tong)(tong)(tong)形成合(he)力。國(guo)家質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)技(ji)(ji)術(shu)(shu)基礎(chu)（NQI）由標準(zhun)、計量(liang)(liang)(liang)、檢(jian)驗(yan)檢(jian)測、認(ren)(ren)證(zheng)(zheng)認(ren)(ren)可四要素(su)共同(tong)(tong)(tong)組成（檢(jian)驗(yan)檢(jian)測和(he)(he)認(ren)(ren)證(zheng)(zheng)認(ren)(ren)可也(ye)(ye)統稱為(wei)“合(he)格評定(ding)”）。其中(zhong)，計量(liang)(liang)(liang)是(shi)質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)監(jian)管的(de)(de)基礎(chu)，主要解(jie)決量(liang)(liang)(liang)的(de)(de)準(zhun)確性(xing)，是(shi)促使貿易達成的(de)(de)前提和(he)(he)基礎(chu)；標準(zhun)是(shi)質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)監(jian)管的(de)(de)依據，主要解(jie)決量(liang)(liang)(liang)的(de)(de)一(yi)(yi)致性(xing)，深化了社會化生產(chan)的(de)(de)分工(gong)(gong)(gong)與(yu)專業(ye)(ye)程度，是(shi)建(jian)立最佳貿易秩序的(de)(de)基本準(zhun)則；包(bao)含認(ren)(ren)證(zheng)(zheng)認(ren)(ren)可和(he)(he)檢(jian)驗(yan)檢(jian)測在內的(de)(de)合(he)格評定(ding)是(shi)質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)監(jian)管的(de)(de)重要手段，主要解(jie)決量(liang)(liang)(liang)的(de)(de)符(fu)合(he)性(xing)，提升(sheng)社會化大生產(chan)產(chan)品(pin)(pin)(pin)(pin)(pin)(pin)與(yu)服(fu)務(wu)(wu)(wu)質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)水平，是(shi)推動(dong)貿易便利化的(de)(de)重要工(gong)(gong)(gong)具。因(yin)此(ci)，質(zhi)(zhi)(zhi)(zhi)檢(jian)系(xi)統機(ji)構整合(he)應(ying)當綜合(he)利用NQI四要素(su)全(quan)面融合(he)和(he)(he)業(ye)(ye)務(wu)(wu)(wu)協同(tong)(tong)(tong)互補，為(wei)企業(ye)(ye)提供一(yi)(yi)站式、一(yi)(yi)條龍的(de)(de)全(quan)面質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)服(fu)務(wu)(wu)(wu)。同(tong)(tong)(tong)時，還應(ying)主動(dong)研究并加強品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)專業(ye)(ye)化服(fu)務(wu)(wu)(wu)。2016年(nian)6月，國(guo)務(wu)(wu)(wu)院辦公廳(ting)印發(fa)(fa)《關于發(fa)(fa)揮(hui)品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)引(yin)領作(zuo)用 推動(dong)工(gong)(gong)(gong)序結構升(sheng)級的(de)(de)意見》（國(guo)辦發(fa)(fa)〔2016〕44號），提出鼓勵發(fa)(fa)展品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)建(jian)設中(zhong)介服(fu)務(wu)(wu)(wu)企業(ye)(ye)。品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)服(fu)務(wu)(wu)(wu)是(shi)一(yi)(yi)項新(xin)興的(de)(de)服(fu)務(wu)(wu)(wu)形式，內容包(bao)括設計、營銷、企業(ye)(ye)品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)評估和(he)(he)品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)咨(zi)詢等(deng)，是(shi)國(guo)家質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)技(ji)(ji)術(shu)(shu)基礎(chu)的(de)(de)重要補充。習近平同(tong)(tong)(tong)志在“三個轉(zhuan)變中(zhong)”中(zhong)也(ye)(ye)重點(dian)指(zhi)出要實現“推動(dong)中(zhong)國(guo)產(chan)品(pin)(pin)(pin)(pin)(pin)(pin)向中(zhong)國(guo)品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)轉(zhuan)變”，因(yin)此(ci)，質(zhi)(zhi)(zhi)(zhi)檢(jian)系(xi)統技(ji)(ji)術(shu)(shu)機(ji)構應(ying)該在重視質(zhi)(zhi)(zhi)(zhi)量(liang)(liang)(liang)發(fa)(fa)展、轉(zhuan)型、創新(xin)的(de)(de)同(tong)(tong)(tong)時也(ye)(ye)關注品(pin)(pin)(pin)(pin)(pin)(pin)牌(pai)服(fu)務(wu)(wu)(wu)。

立足長遠，打造跨區(qu)域(yu)的全(quan)國(guo)(guo)質檢(jian)(jian)(jian)(jian)(jian)系統(tong)(tong)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)。研(yan)究(jiu)實施品(pin)牌化、集(ji)團(tuan)(tuan)化的發展(zhan)模式(shi)，打造質檢(jian)(jian)(jian)(jian)(jian)系統(tong)(tong)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)航(hang)母。借(jie)鑒(jian)TüV，SGS，UL等(deng)(deng)國(guo)(guo)際檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)運(yun)營經(jing)(jing)(jing)驗(yan)(yan)(yan)，以(yi)及(ji)國(guo)(guo)內山東世(shi)通(tong)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)，中國(guo)(guo)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)（CCIC），中國(guo)(guo)建材檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)（CTC），華(hua)測(ce)(ce)(ce)(ce)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)公司（CTI）等(deng)(deng)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)整合(he)(he)(he)及(ji)品(pin)牌創(chuang)建經(jing)(jing)(jing)驗(yan)(yan)(yan)，以(yi)“京津冀一(yi)(yi)(yi)體化”、“長江(jiang)經(jing)(jing)(jing)濟帶”、“一(yi)(yi)(yi)帶一(yi)(yi)(yi)路(lu)”三大(da)發展(zhan)戰略為契機(ji)(ji)，以(yi)省、市(shi)、縣級(ji)質檢(jian)(jian)(jian)(jian)(jian)系統(tong)(tong)技術機(ji)(ji)構為模塊，以(yi)資(zi)產(chan)(chan)為紐帶，強(qiang)(qiang)強(qiang)(qiang)聯合(he)(he)(he)，打造質檢(jian)(jian)(jian)(jian)(jian)系統(tong)(tong)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)集(ji)團(tuan)(tuan)。同時(shi)(shi)還(huan)應(ying)立足中國(guo)(guo)國(guo)(guo)情，探索(suo)具有(you)中國(guo)(guo)特色的檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)機(ji)(ji)構整合(he)(he)(he)、改革(ge)與發展(zhan)道路(lu)。一(yi)(yi)(yi)是(shi)運(yun)用“互聯網+”、物(wu)聯網和云計(ji)算等(deng)(deng)新(xin)興技術手段，探索(suo)質檢(jian)(jian)(jian)(jian)(jian)系統(tong)(tong)檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)資(zi)源共享機(ji)(ji)制，實現跨區(qu)域(yu)、跨行業的資(zi)源整合(he)(he)(he)模式(shi)。二是(shi)整合(he)(he)(he)過程要合(he)(he)(he)理協調(diao)、配置資(zi)源，既(ji)要促(cu)進國(guo)(guo)有(you)資(zi)產(chan)(chan)保值增(zeng)值，也要敢于放(fang)棄不良資(zi)產(chan)(chan)，不讓不良的檢(jian)(jian)(jian)(jian)(jian)驗(yan)(yan)(yan)檢(jian)(jian)(jian)(jian)(jian)測(ce)(ce)(ce)(ce)認(ren)(ren)(ren)證(zheng)(zheng)(zheng)資(zi)源成為整合(he)(he)(he)工作的包袱和累贅，同時(shi)(shi)要警惕和防止(zhi)國(guo)(guo)有(you)資(zi)產(chan)(chan)流(liu)失。三是(shi)強(qiang)(qiang)化技術能(neng)力和服務意識，切實服務好國(guo)(guo)家(jia)經(jing)(jing)(jing)濟社會(hui)轉型升級(ji)、三個轉變和“大(da)眾(zhong)創(chuang)業、萬眾(zhong)創(chuang)新(xin)”等(deng)(deng)戰略發展(zhan)。

發(fa)揮資質認定(ding)行(xing)(xing)政(zheng)監(jian)(jian)管作(zuo)用，強(qiang)化檢(jian)(jian)驗(yan)檢(jian)(jian)測認證(zheng)行(xing)(xing)業監(jian)(jian)管。在(zai)檢(jian)(jian)驗(yan)檢(jian)(jian)測認證(zheng)機(ji)構(gou)整合(he)工(gong)作(zuo)推進的同時，也(ye)應(ying)當警惕(ti)檢(jian)(jian)驗(yan)檢(jian)(jian)測認證(zheng)市場(chang)變革可(ke)能(neng)引發(fa)的短期異動和個別機(ji)構(gou)不(bu)規(gui)范(fan)不(bu)誠信行(xing)(xing)為，積(ji)極利用行(xing)(xing)政(zheng)監(jian)(jian)管、認可(ke)約(yue)束、分類評級(ji)、能(neng)力驗(yan)證(zheng)、雙隨機(ji)監(jian)(jian)督、統計調查、申投訴處理、誠信體系建設等多種(zhong)手段打造我(wo)國檢(jian)(jian)驗(yan)檢(jian)(jian)測認證(zheng)行(xing)(xing)業的“防火墻”，引導市場(chang)規(gui)范(fan)、有(you)序發(fa)展。

改革是走向進(jin)步的關鍵一步！