重磅解讀《關于加強新冠肺炎疫情防控有序推動企業開復工工作的通知》
2020-03-03 瀏覽量：
新冠(guan)肺炎疫(yi)情(qing)(qing)發(fa)(fa)生以來，為了防(fang)止新冠(guan)肺炎疫(yi)情(qing)(qing)在我國(guo)(guo)的(de)進(jin)一步(bu)擴散(san)，全國(guo)(guo)各省市(shi)(shi)紛紛采取關閉市(shi)(shi)場(chang)、交通(tong)管(guan)制、社區隔離等(deng)方式有(you)效避免人員集聚。在黨中央集中統一領(ling)導(dao)下，疫(yi)情(qing)(qing)防(fang)控工(gong)(gong)作已(yi)經(jing)取得成效。隨著(zhu)新冠(guan)疫(yi)情(qing)(qing)逐步(bu)呈現(xian)出積極向好的(de)態勢(shi)，湖北(bei)省以外(wai)地區的(de)疫(yi)情(qing)(qing)基(ji)本得到控制，中央積極推動(dong)各地在做好疫(yi)情(qing)(qing)防(fang)控的(de)基(ji)礎(chu)上逐步(bu)恢復(fu)正常(chang)生產生活秩序(xu)。受到疫(yi)情(qing)(qing)影響，房屋(wu)建(jian)筑(zhu)(zhu)和(he)市(shi)(shi)政基(ji)礎(chu)設(she)施領(ling)域的(de)建(jian)設(she)項目處(chu)于大(da)(da)面積停工(gong)(gong)或暫(zan)緩建(jian)設(she)的(de)狀態。建(jian)筑(zhu)(zhu)業(ye)是我國(guo)(guo)國(guo)(guo)民(min)經(jing)濟(ji)的(de)支(zhi)柱型產業(ye)，停工(gong)(gong)不僅給建(jian)筑(zhu)(zhu)企(qi)業(ye)和(he)施工(gong)(gong)企(qi)業(ye)等(deng)造成巨大(da)(da)的(de)資金壓力，更(geng)對(dui)社會經(jing)濟(ji)發(fa)(fa)展造成巨大(da)(da)的(de)不利影響。因此，建(jian)筑(zhu)(zhu)業(ye)盡快恢復(fu)正常(chang)生產工(gong)(gong)作對(dui)實現(xian)我國(guo)(guo)本年度(du)經(jing)濟(ji)發(fa)(fa)展目標(biao)具(ju)有(you)重大(da)(da)的(de)意義。
2月26日，住(zhu)房和城鄉建(jian)設部下發《關于(yu)加強新冠肺炎疫情防(fang)控有序推動企業開復(fu)工工作的通(tong)知(zhi)》。今天，我們刊發上海市建(jian)緯律師事務所副主(zhu)任曹珊對該《通(tong)知(zhi)》的解讀文章，以饗讀者。
2月17日，國務院聯防(fang)聯控(kong)機(ji)制印發(fa)《關于科學防(fang)治精準施策(ce)分(fen)區分(fen)級做(zuo)好新冠(guan)肺炎疫(yi)情防(fang)控(kong)工作(zuo)的(de)指導(dao)意(yi)見(jian)》（以下簡稱《指導意見》）。《指(zhi)導意(yi)見》提(ti)出(chu)科學劃分(fen)疫(yi)情風(feng)險(xian)(xian)等(deng)級，明確分(fen)級分(fen)類的(de)防(fang)(fang)控策略(lve)。低風(feng)險(xian)(xian)地區(qu)，要(yao)(yao)實施(shi)“外防(fang)(fang)輸(shu)(shu)入”策略(lve)，全面恢復正(zheng)常生產生活秩(zhi)(zhi)序(xu)(xu)。中(zhong)風(feng)險(xian)(xian)地區(qu)，要(yao)(yao)實施(shi)“外防(fang)(fang)輸(shu)(shu)入、內防(fang)(fang)擴(kuo)散”策略(lve)，盡(jin)快有序(xu)(xu)恢復正(zheng)常生產生活秩(zhi)(zhi)序(xu)(xu)。高風(feng)險(xian)(xian)地區(qu)，要(yao)(yao)實施(shi)“內防(fang)(fang)擴(kuo)散、外防(fang)(fang)輸(shu)(shu)出(chu)、嚴格管控”策略(lve)，根據疫(yi)情態勢逐步恢復生產生活秩(zhi)(zhi)序(xu)(xu)。自《指(zhi)導意(yi)見》發布后，多地政府紛(fen)紛(fen)響(xiang)應出(chu)臺本地企業復工復產的(de)指(zhi)導性文件。2月(yue)23日，習近平主席出(chu)席統籌(chou)推進新冠肺炎疫(yi)情防控(kong)和經濟社(she)會發展工(gong)作部(bu)署(shu)會議(yi)，針對(dui)全(quan)國有(you)序復工(gong)復產作出(chu)了重(zhong)要指示(shi)。習近平(ping)主(zhu)席要(yao)求再次(ci)強(qiang)調(diao)落實區(qu)分級精準(zhun)復(fu)(fu)工(gong)(gong)復(fu)(fu)產(chan)，按照(zhao)低風險(xian)(xian)、中風險(xian)(xian)和高風險(xian)(xian)分級分別落實相應(ying)的復(fu)(fu)工(gong)(gong)復(fu)(fu)產(chan)政策。同時，針對建設工(gong)程復工(gong)問題，習(xi)近平(ping)主(zhu)席(xi)特(te)別強調要(yao)加快在建和新開工(gong)項目建設進度(du)，加強用工(gong)、用地、資金(jin)等要(yao)素保(bao)障。2月26日，住房和城鄉建設部辦公廳出臺了《關于加強新冠肺炎疫情防控有序推動企業開復工工作的通知》（以下簡稱《通知》）（建辦市〔2020〕5號）。《通知》結合習近平主席講話的重要精神和國務院有關工作部署，針對房屋建筑和市政基礎設施工程領域復工問題進行細化規定，指導建筑企業和建設項目有序開復工。《通知》分(fen)為四大點(dian)共計13個條文，從企(qi)(qi)業(ye)樹立大局(ju)意(yi)識有(you)序推動企(qi)(qi)業(ye)開復(fu)工(gong)、加大扶持(chi)力度解決(jue)企(qi)(qi)業(ye)困難(nan)、提升行業(ye)治(zhi)理能力和(he)(he)落實監管(guan)責任四個方面對建筑企(qi)(qi)業(ye)和(he)(he)建設項目復(fu)工(gong)作出安排。下文對《通知》的主要內容(rong)作出進(jin)一步解讀，以供各企(qi)(qi)業(ye)參考盡快推動復(fu)工(gong)復(fu)產(chan)。
1. 分區分級做好項目復工及防疫工作，推動低風險地區全面復工各(ge)級地(di)(di)方(fang)政府應(ying)(ying)當在(zai)(zai)妥善分(fen)區(qu)分(fen)級的(de)基(ji)礎上統籌(chou)安排建設(she)項(xiang)(xiang)目(mu)(mu)(mu)的(de)復(fu)(fu)工。《通知》第（一）點提出地(di)(di)方(fang)各(ge)級住建部(bu)(bu)門(men)要(yao)(yao)對(dui)本地(di)(di)企(qi)(qi)業(ye)經(jing)營和(he)工程項(xiang)(xiang)目(mu)(mu)(mu)建設(she)整體情況進行摸排，以(yi)縣（市、區(qu)、旗）為單位，有(you)序(xu)推(tui)動企(qi)(qi)業(ye)和(he)項(xiang)(xiang)目(mu)(mu)(mu)開復(fu)(fu)工。低風(feng)(feng)(feng)險地(di)(di)區(qu)全面(mian)推(tui)動工程項(xiang)(xiang)目(mu)(mu)(mu)復(fu)(fu)工，中風(feng)(feng)(feng)險地(di)(di)區(qu)要(yao)(yao)有(you)序(xu)推(tui)動工程項(xiang)(xiang)目(mu)(mu)(mu)分(fen)階段、錯時開復(fu)(fu)工，高風(feng)(feng)(feng)險地(di)(di)區(qu)要(yao)(yao)在(zai)(zai)確保疫情得到有(you)效防控后再(zai)逐(zhu)步有(you)序(xu)擴(kuo)大企(qi)(qi)業(ye)開復(fu)(fu)工范圍。按照《通知》的(de)要(yao)(yao)求，各(ge)省(sheng)市住建部(bu)(bu)門(men)應(ying)(ying)當及時完成摸排工作按照要(yao)(yao)求分(fen)區(qu)分(fen)級。在(zai)(zai)低風(feng)(feng)(feng)險地(di)(di)區(qu)應(ying)(ying)當全面(mian)復(fu)(fu)工，各(ge)地(di)(di)不應(ying)(ying)當對(dui)低風(feng)(feng)(feng)險地(di)(di)區(qu)的(de)復(fu)(fu)工設(she)置不合(he)理的(de)限(xian)制(zhi)(zhi)條(tiao)件或(huo)者審批(pi)程序(xu)延緩復(fu)(fu)工時間。在(zai)(zai)本《通知》出臺前，地(di)(di)方(fang)住建部(bu)(bu)門(men)制(zhi)(zhi)定的(de)相(xiang)關復(fu)(fu)工條(tiao)件如有(you)限(xian)制(zhi)(zhi)的(de)，應(ying)(ying)當及時按照本《通知》的(de)規(gui)定進行相(xiang)應(ying)(ying)調整。但(dan)是，需提示建設(she)單位及施工企(qi)(qi)業(ye)注意以(yi)下兩點：第一，若地(di)方政(zheng)府尚未及時調整復工政(zheng)策的，當地(di)建設項目復工時仍然應當遵(zun)守地(di)方政(zheng)府的規定(ding)，否則建設單位(wei)或施工企業可能要面臨(lin)因違規復工產(chan)生的法律風險。第二，建設單位和(he)施工(gong)(gong)企業應當(dang)按照施工(gong)(gong)合同的約定(ding)及(ji)時(shi)就(jiu)復工(gong)(gong)問(wen)題進行書面(mian)(mian)溝通(tong)和(he)確認(ren)，避免后續由此(ci)產生工(gong)(gong)期(qi)方(fang)面(mian)(mian)的爭議。《通知》同時(shi)強(qiang)調(diao)建(jian)設單位(wei)應當(dang)保障工(gong)程項目(mu)合理工(gong)期(qi)，嚴禁盲目(mu)搶工(gong)期(qi)、趕進度等行為。需注意的(de)(de)(de)是，該(gai)規(gui)(gui)定(ding)并(bing)未禁(jin)止高風(feng)險地區建(jian)(jian)設項(xiang)目(mu)(mu)的(de)(de)(de)復(fu)工，滿足一定(ding)條(tiao)件的(de)(de)(de)建(jian)(jian)設項(xiang)目(mu)(mu)可以(yi)(yi)申(shen)請復(fu)工。《通知(zhi)》中(zhong)提到涉(she)及疫(yi)情(qing)防(fang)控(kong)、民生(sheng)(sheng)(sheng)保障及其他重(zhong)要(yao)(yao)國(guo)計民生(sheng)(sheng)(sheng)的(de)(de)(de)工程(cheng)(cheng)項(xiang)目(mu)(mu)應優先開復(fu)工。因此，即(ji)使在高風(feng)險區，滿足前述(shu)條(tiao)件的(de)(de)(de)工程(cheng)(cheng)項(xiang)目(mu)(mu)按照規(gui)(gui)定(ding)做好防(fang)疫(yi)措施(shi)的(de)(de)(de)，可以(yi)(yi)申(shen)請開復(fu)工。四川省住建(jian)(jian)廳就(jiu)明(ming)確規(gui)(gui)定(ding)了在高風(feng)險區的(de)(de)(de)應急(ji)搶(qiang)險、公(gong)共衛(wei)生(sheng)(sheng)(sheng)、脫貧攻堅、重(zhong)大產業(ye)、重(zhong)要(yao)(yao)基礎設施(shi)、重(zhong)要(yao)(yao)民生(sheng)(sheng)(sheng)工程(cheng)(cheng)等項(xiang)目(mu)(mu)，精準制(zhi)定(ding)復(fu)工方案，建(jian)(jian)立疫(yi)情(qing)防(fang)控(kong)體系，在做好疫(yi)情(qing)防(fang)控(kong)的(de)(de)(de)前提下，自(zi)查達(da)到復(fu)工條(tiao)件，屬(shu)地住房城鄉建(jian)(jian)設行政(zheng)主管部門(men)復(fu)核(he)后及時復(fu)工。[1]2. 明確各方職責，落實防疫管理制度
建(jian)設單(dan)(dan)(dan)位(wei)、施(shi)工(gong)(gong)企業(ye)和(he)監理(li)企業(ye)應當明(ming)確(que)各方(fang)的(de)(de)(de)職責，按(an)照國(guo)務院的(de)(de)(de)要求以及《通知(zhi)》的(de)(de)(de)規定作好項(xiang)目現(xian)(xian)場的(de)(de)(de)防疫工(gong)(gong)作。三方(fang)主(zhu)體應當協(xie)調各方(fang)關(guan)系(xi)，嚴格制定并執行防疫管(guan)理(li)制度，避(bi)免項(xiang)目復工(gong)(gong)后在項(xiang)目現(xian)(xian)場出現(xian)(xian)疫情。《通知(zhi)》未就建(jian)設單(dan)(dan)(dan)位(wei)、施(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)和(he)監理(li)單(dan)(dan)(dan)位(wei)各自的(de)(de)(de)責任分配進(jin)行詳細規定，建(jian)議(yi)按(an)照建(jian)設單(dan)(dan)(dan)位(wei)組織(zhi)、施(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)主(zhu)負責和(he)監理(li)單(dan)(dan)(dan)位(wei)監督實施(shi)的(de)(de)(de)方(fang)式(shi)確(que)定各方(fang)的(de)(de)(de)職責。首先，建(jian)(jian)(jian)(jian)設單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)應(ying)當(dang)(dang)(dang)承(cheng)擔組織參建(jian)(jian)(jian)(jian)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)制(zhi)(zhi)(zhi)定(ding)(ding)(ding)現(xian)(xian)場(chang)(chang)防(fang)疫(yi)(yi)制(zhi)(zhi)(zhi)度、分(fen)(fen)配各單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)防(fang)疫(yi)(yi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)作(zuo)的(de)(de)(de)職責。從合(he)(he)(he)同(tong)關(guan)系的(de)(de)(de)角度來看，建(jian)(jian)(jian)(jian)設單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)作(zuo)為(wei)發包(bao)方分(fen)(fen)別與施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)和監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)簽訂相應(ying)合(he)(he)(he)同(tong)，施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)與監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)之間并(bing)(bing)無直接(jie)合(he)(he)(he)同(tong)關(guan)系。建(jian)(jian)(jian)(jian)設單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)作(zuo)為(wei)合(he)(he)(he)同(tong)甲方協(xie)調施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)與監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)之間的(de)(de)(de)職責，分(fen)(fen)配各方防(fang)疫(yi)(yi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)作(zuo)顯然更(geng)具有(you)合(he)(he)(he)理(li)性。其次，施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)應(ying)當(dang)(dang)(dang)承(cheng)擔現(xian)(xian)場(chang)(chang)防(fang)疫(yi)(yi)的(de)(de)(de)直接(jie)責任，應(ying)當(dang)(dang)(dang)落(luo)實(shi)好各項(xiang)(xiang)防(fang)疫(yi)(yi)制(zhi)(zhi)(zhi)度要(yao)求。《中華人民共和國建(jian)(jian)(jian)(jian)筑(zhu)(zhu)(zhu)法(fa)》第(di)三十九條(tiao)規(gui)(gui)(gui)定(ding)(ding)(ding)：“建(jian)(jian)(jian)(jian)筑(zhu)(zhu)(zhu)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)企業(ye)應(ying)當(dang)(dang)(dang)在施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)現(xian)(xian)場(chang)(chang)采(cai)取維護(hu)安全(quan)(quan)、防(fang)范危險、預防(fang)火災等措施(shi)(shi)；有(you)條(tiao)件的(de)(de)(de)，應(ying)當(dang)(dang)(dang)對(dui)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)現(xian)(xian)場(chang)(chang)實(shi)行封閉管理(li)。”《建(jian)(jian)(jian)(jian)設工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)程安全(quan)(quan)生產管理(li)條(tiao)例》第(di)二(er)十四條(tiao)規(gui)(gui)(gui)定(ding)(ding)(ding)：“建(jian)(jian)(jian)(jian)設工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)程實(shi)行施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)總(zong)承(cheng)包(bao)的(de)(de)(de)，由(you)總(zong)承(cheng)包(bao)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)對(dui)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)現(xian)(xian)場(chang)(chang)的(de)(de)(de)安全(quan)(quan)生產負(fu)總(zong)責。”按(an)照建(jian)(jian)(jian)(jian)筑(zhu)(zhu)(zhu)法(fa)的(de)(de)(de)規(gui)(gui)(gui)定(ding)(ding)(ding)，施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)企業(ye)應(ying)當(dang)(dang)(dang)對(dui)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)現(xian)(xian)場(chang)(chang)的(de)(de)(de)安全(quan)(quan)生產負(fu)責，并(bing)(bing)有(you)權對(dui)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)現(xian)(xian)場(chang)(chang)進行封閉式管理(li)。施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)企業(ye)作(zuo)為(wei)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)現(xian)(xian)場(chang)(chang)的(de)(de)(de)實(shi)際管理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)，應(ying)當(dang)(dang)(dang)參照安全(quan)(quan)生產的(de)(de)(de)有(you)關(guan)規(gui)(gui)(gui)定(ding)(ding)(ding)落(luo)實(shi)各項(xiang)(xiang)防(fang)疫(yi)(yi)制(zhi)(zhi)(zhi)度要(yao)求。最后，監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)應(ying)當(dang)(dang)(dang)切實(shi)履行監(jian)(jian)督(du)的(de)(de)(de)職責。建(jian)(jian)(jian)(jian)筑(zhu)(zhu)(zhu)法(fa)第(di)三十二(er)條(tiao)規(gui)(gui)(gui)定(ding)(ding)(ding)：“建(jian)(jian)(jian)(jian)筑(zhu)(zhu)(zhu)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)程監(jian)(jian)理(li)應(ying)當(dang)(dang)(dang)依照法(fa)律、行政法(fa)規(gui)(gui)(gui)及(ji)有(you)關(guan)的(de)(de)(de)技(ji)術標(biao)準、設計文(wen)件和建(jian)(jian)(jian)(jian)筑(zhu)(zhu)(zhu)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)程承(cheng)包(bao)合(he)(he)(he)同(tong)，對(dui)承(cheng)包(bao)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)在施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)質量、建(jian)(jian)(jian)(jian)設工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)期和建(jian)(jian)(jian)(jian)設資金使用等方面，代表建(jian)(jian)(jian)(jian)設單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)實(shi)施(shi)(shi)監(jian)(jian)督(du)。”監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)的(de)(de)(de)法(fa)定(ding)(ding)(ding)職責是代表建(jian)(jian)(jian)(jian)設單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)對(dui)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)的(de)(de)(de)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)過程進行監(jian)(jian)督(du)。因此，監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)不具有(you)落(luo)實(shi)項(xiang)(xiang)目現(xian)(xian)場(chang)(chang)防(fang)疫(yi)(yi)制(zhi)(zhi)(zhi)度的(de)(de)(de)法(fa)律基(ji)礎或合(he)(he)(he)同(tong)基(ji)礎。監(jian)(jian)理(li)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)應(ying)當(dang)(dang)(dang)在遵守各項(xiang)(xiang)防(fang)疫(yi)(yi)制(zhi)(zhi)(zhi)度的(de)(de)(de)前提下，對(dui)施(shi)(shi)工(gong)(gong)(gong)(gong)(gong)(gong)(gong)(gong)單(dan)(dan)(dan)(dan)(dan)位(wei)(wei)(wei)(wei)(wei)(wei)落(luo)實(shi)防(fang)疫(yi)(yi)制(zhi)(zhi)(zhi)度的(de)(de)(de)情況進行監(jian)(jian)督(du)和管理(li)。在防(fang)疫制度方面，《通知》對(dui)(dui)避免人(ren)員(yuan)聚集、實(shi)施封閉(bi)式(shi)管(guan)理再次進行了強調。《通知》第八條要求(qiu)對(dui)(dui)全面落實(shi)對(dui)(dui)建筑工(gong)人(ren)實(shi)名制管(guan)理，所(suo)有開(kai)復工(gong)項目原則上(shang)實(shi)行封閉(bi)管(guan)理。施工(gong)現(xian)場(chang)(chang)要嚴(yan)控(kong)人(ren)員(yuan)流(liu)動，盡量做到作業區(qu)、辦公區(qu)和生活區(qu)的(de)相對(dui)(dui)隔離，并對(dui)(dui)施工(gong)現(xian)場(chang)(chang)劃(hua)分作業區(qu)域。3. 加強施工現場質量安全管理
《通(tong)(tong)(tong)(tong)知》在現場質(zhi)量安(an)全管(guan)理的(de)(de)層面采取松(song)緊結(jie)合的(de)(de)方式。基于保障建(jian)設項目的(de)(de)安(an)全，《通(tong)(tong)(tong)(tong)知》從嚴(yan)要求(qiu)做(zuo)好開(kai)復工(gong)(gong)(gong)前(qian)的(de)(de)安(an)全生產條件檢查(cha)。而(er)由于受到疫情的(de)(de)影響，《通(tong)(tong)(tong)(tong)知》則放寬(kuan)了(le)安(an)全管(guan)理中(zhong)的(de)(de)程序性要求(qiu)。針(zhen)對安(an)全生產條件的(de)(de)檢查(cha)，《通(tong)(tong)(tong)(tong)知》強調(diao)重點排查(cha)深基坑、起重機械、高支模以及城市(shi)軌道(dao)交通(tong)(tong)(tong)(tong)工(gong)(gong)(gong)程等危險性較大(da)的(de)(de)分部分項工(gong)(gong)(gong)程安(an)全隱患(huan)，并(bing)要求(qiu)在人員(yuan)開(kai)復工(gong)(gong)(gong)前(qian)做(zuo)好質(zhi)量安(an)全、衛生防疫的(de)(de)交底工(gong)(gong)(gong)作。未充分落實(shi)上(shang)述(shu)安(an)全管(guan)理要求(qiu)的(de)(de)項目，嚴(yan)禁擅自開(kai)復工(gong)(gong)(gong)。針(zhen)對安(an)全管(guan)理的(de)(de)相關(guan)程序，《通(tong)(tong)(tong)(tong)知》一方面放寬(kuan)了(le)相關(guan)手續辦理流(liu)程，鼓(gu)勵實(shi)行告知承諾制(zhi)，允許(xu)疫情解除后補(bu)辦有關(guan)手續；另一方面允許(xu)企業(ye)安(an)排有相應資格證(zheng)書的(de)(de)人員(yuan)暫時(shi)頂替受疫情影響無法及時(shi)返崗復工(gong)(gong)(gong)的(de)(de)管(guan)理人員(yuan)。《通(tong)(tong)(tong)(tong)知》簡化行政(zheng)(zheng)手續有助(zhu)于項目加快開(kai)工(gong)(gong)(gong)節奏，減少企業(ye)因行政(zheng)(zheng)許(xu)可而(er)增加的(de)(de)時(shi)間(jian)成本(ben)。
（二）加大對企業的扶持力度，減少企業因疫情受到的影響為了(le)盡量降低(di)企業(ye)(ye)因疫情受到的(de)影響(xiang)，減少建設項目(mu)復工的(de)障礙，《通知》從(cong)金融財稅相關(guan)政(zheng)策(ce)支持、加大用工用料(liao)保障、減輕企業(ye)(ye)資金負擔三個角度對(dui)支持企業(ye)(ye)和建設項目(mu)復工提出相應要求。1. 金融財稅政策支持
中(zhong)央為(wei)了(le)減輕疫情給各(ge)企(qi)(qi)業(ye)造成(cheng)的(de)資金(jin)困(kun)難，從(cong)稅收(shou)減免(mian)緩繳、社(she)會保險費適當返(fan)還、租金(jin)減免(mian)等(deng)(deng)方面制定了(le)相應(ying)(ying)(ying)的(de)優惠(hui)政(zheng)策。《通知(zhi)》要(yao)求地方住建部門(men)指導企(qi)(qi)業(ye)用足用好相應(ying)(ying)(ying)的(de)優惠(hui)政(zheng)策。建設(she)單(dan)位、施(shi)工(gong)單(dan)位等(deng)(deng)項(xiang)目參建單(dan)位在(zai)正(zheng)式復工(gong)后應(ying)(ying)(ying)當主(zhu)動了(le)解(jie)國(guo)家及(ji)企(qi)(qi)業(ye)所在(zai)地政(zheng)府制定的(de)相關政(zheng)策，滿(man)足相關條件(jian)的(de)應(ying)(ying)(ying)主(zhu)動申請相應(ying)(ying)(ying)的(de)減免(mian)措施(shi)及(ji)時緩解(jie)企(qi)(qi)業(ye)資金(jin)壓(ya)力(li)。截(jie)止到本(ben)文發布日期，國(guo)家各(ge)部委出臺的(de)稅收(shou)優惠(hui)、社(she)保資金(jin)優惠(hui)等(deng)(deng)政(zheng)策主(zhu)要(yao)有如下幾項(xiang)：（1）2019年(nian)12月30日，財(cai)政部和國家(jia)(jia)稅(shui)務總(zong)(zong)局聯合發(fa)布的(de)(de)《財(cai)政部、國家(jia)(jia)稅(shui)務總(zong)(zong)局關于公(gong)(gong)益慈(ci)善事業捐贈個人所(suo)得稅(shui)政策(ce)的(de)(de)公(gong)(gong)告》（財(cai)政部、國家(jia)(jia)稅(shui)務總(zong)(zong)局公(gong)(gong)告2019年(nian)第99號）；（2）2月6日，財(cai)政(zheng)部(bu)和國家稅務(wu)總(zong)局聯合發布的《關于支持新型(xing)冠狀病毒感(gan)染(ran)的肺炎疫(yi)情防控有(you)關稅收政(zheng)策的公告(gao)》（財(cai)政(zheng)部(bu) 稅務(wu)總(zong)局公告(gao)2020年第8號）；（3）2月6日(ri)，國家(jia)稅(shui)務總(zong)局發布的《關(guan)于支(zhi)持(chi)新(xin)型(xing)冠狀病毒感(gan)染的肺炎疫(yi)情防控有關(guan)捐贈稅(shui)收(shou)政策的公(gong)告》（財政部 稅(shui)務總(zong)局公(gong)告2020年第9號）；（4）2月10日(ri)，國家稅(shui)務總(zong)(zong)局(ju)(ju)發布的(de)《國家稅(shui)務總(zong)(zong)局(ju)(ju)關于支持新型冠狀病毒(du)感染(ran)的(de)肺(fei)炎(yan)疫情(qing)防控有關稅(shui)收征收管理事項的(de)公告》（國家稅(shui)務總(zong)(zong)局(ju)(ju)公告2020年第4號）；（5）2月11日(ri)，國家稅(shui)務(wu)總局(ju)發布(bu)的《新冠肺(fei)炎疫(yi)情防控稅(shui)收優(you)惠政策指引》；（6）2月20日，人(ren)力(li)資(zi)源(yuan)和(he)社(she)會保障部(bu)、財政(zheng)部(bu)和(he)國(guo)家稅(shui)務總局(ju)聯合發布(bu)的(de)《人(ren)力(li)資(zi)源(yuan)社(she)會保障部(bu)、財政(zheng)部(bu)、稅(shui)務總局(ju)關(guan)于階段性減免(mian)企業社(she)會保險費的(de)通知》（人(ren)社(she)部(bu)發〔2020〕11號）；（7）2月25日，國家稅(shui)務(wu)總(zong)局發(fa)布的《國家稅(shui)務(wu)總(zong)局關于貫徹落實階段性減免企業社會保險(xian)費政策的通知》（稅(shui)總(zong)函〔2020〕33號(hao)）；（8）2月27日，國家稅(shui)務(wu)總局發布的《國家稅(shui)務(wu)總局關于開展2020年“便(bian)民辦(ban)稅(shui)春風行動”的意見》（稅(shui)總發〔2020〕11號）。2. 用工用料保障
（1）用工保障政策及(ji)有償(chang)借用注意事項在用(yong)工(gong)(gong)(gong)保(bao)障(zhang)(zhang)方面，《通知(zhi)》要求加強部門協調(diao)(diao)聯(lian)動，積極幫(bang)助企業(ye)做好工(gong)(gong)(gong)人返(fan)崗、建筑材料及設(she)備(bei)運輸(shu)、防疫物資保(bao)障(zhang)(zhang)等(deng)工(gong)(gong)(gong)作。各(ge)地應當做好農民(min)工(gong)(gong)(gong)返(fan)崗復工(gong)(gong)(gong)點對點對接(jie)工(gong)(gong)(gong)作，減少分散出(chu)行(xing)的風險。《通知(zhi)》提出(chu)要引導企業(ye)互(hu)相(xiang)采用(yong)短期有償借工(gong)(gong)(gong)等(deng)方式，相(xiang)互(hu)調(diao)(diao)劑用(yong)工(gong)(gong)(gong)余缺。需提示企業注意，采取有償借用（以下簡稱“借聘”）方式的，各方應當及時簽訂相應的有償借用協議以明確各方權利義務關系。借聘是指實際用工單位向勞動者的雇傭單位（即用人單位）暫時借調該勞動者，勞動者與用人單位維持勞動合同關系，借調期間勞動者相關費用由用工單位承擔。從行為模式上看，借聘與勞務派遣存在相似之處，但是借聘并非勞務派遣。勞動法第五十七條第二款明確規定了，經營勞務派遣業務的應當申請行政許可，未經許可的任何單位和個人不得經營勞務派遣業務。顯然在《通知》語境下的借聘單位并非勞務派遣單位。根據勞動法及勞動合同法的規定，用人單位與勞動者之間成立勞動合同關系，用人單位應當按照法律法規的規定向勞動者支付工資、繳納社保以及提供勞動保障等。若用人單位同意將本單位勞動者借聘至實際用工單位的，用人單位仍然應當履行其與勞動者簽訂的勞動合同的約定。為了避免用人單位、用工單位及勞動者因勞動關系問題產生糾紛，三方可以參照勞務派遣協議的有關內容簽訂有償用工協議。（2）在(zai)用料保(bao)障方(fang)面(mian)，《通知》提(ti)出要(yao)統籌推進建筑業產業鏈上(shang)下游協同(tong)復工，加強上(shang)下游配套企(qi)業溝通，協助企(qi)業解決集(ji)中復工可能帶來的短期內原材(cai)料短缺或價格大幅上(shang)漲等問題。關于如何應對(dui)材料(liao)價格上漲問題，將在下文合同變更問題中詳細梳理。
受到(dao)疫情的(de)影響，施工合同(tong)在(zai)履行中將會(hui)面(mian)臨工期延誤、停工損失(shi)索賠、疫情防護(hu)費用增加、人工材料價格上(shang)漲等問(wen)題。《通知》針(zhen)對這(zhe)幾項問(wen)題分別(bie)提出了解(jie)決(jue)方案。1. 工期順延問題
根(gen)據(ju)《通(tong)知》的要求，因本次疫(yi)情導致工期實際(ji)延誤的，按(an)照不可(ke)抗力處理(li)。在處理(li)工期順(shun)延問(wen)題時，建設單(dan)位和施工單(dan)位應當按(an)照如(ru)下思路處理(li)：建設(she)單位和(he)施(shi)工單位應(ying)(ying)當首先關注(zhu)雙方簽訂的(de)(de)施(shi)工合同(tong)(tong)中對(dui)于發生不可抗力后(hou)工期順延問(wen)題是否有明(ming)確約定(ding)的(de)(de)。如合同(tong)(tong)有約定(ding)的(de)(de)，施(shi)工單位應(ying)(ying)當按(an)照合同(tong)(tong)約定(ding)的(de)(de)期限和(he)程序通知建設(she)單位，并提交相應(ying)(ying)的(de)(de)證明(ming)材(cai)料。若合同(tong)對于(yu)發生不可抗(kang)力事件后工期(qi)(qi)順延(yan)(yan)問題(ti)沒有明確約定的(de)(de)，則(ze)此時施工單(dan)位(wei)應當(dang)援引合同(tong)法(fa)第(di)一百一十(shi)七條第(di)一款(kuan)的(de)(de)規定，向建(jian)設單(dan)位(wei)主張(zhang)順延(yan)(yan)工期(qi)(qi)。根據合同(tong)法(fa)的(de)(de)規定，因(yin)不可抗(kang)力導(dao)致不能履行(xing)合同(tong)的(de)(de)，根據不可抗(kang)力的(de)(de)影響可以部分或全部免除責任。因(yin)此，由于(yu)疫情(qing)造成工期(qi)(qi)延(yan)(yan)誤(wu)的(de)(de)，建(jian)設單(dan)位(wei)應當(dang)順延(yan)(yan)工期(qi)(qi)。但是(shi)，根據(ju)合同法第一百一十八條的(de)規定，遲(chi)延履行后(hou)發生(sheng)不(bu)可抗(kang)(kang)力的(de)，不(bu)能免除當(dang)事人(ren)的(de)責任。建(jian)設單(dan)(dan)位(wei)和施工單(dan)(dan)位(wei)應當(dang)注意，若疫情產生(sheng)前已(yi)經出現(xian)因承包(bao)人(ren)原(yuan)因導致工期延誤的(de)，此(ci)時承包(bao)人(ren)不(bu)得適(shi)用不(bu)可抗(kang)(kang)力條款主張(zhang)工期順延，應當(dang)向發包(bao)人(ren)承擔工期延誤的(de)違約責任。合(he)同(tong)法第一百一十八條對(dui)于(yu)適用不可(ke)抗(kang)力條款提出了三個要求：（1）及(ji)時通(tong)知；（2）防止損(sun)(sun)失(shi)擴(kuo)大；（3）提供適當證(zheng)(zheng)明(ming)(ming)(ming)。首先，施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)應(ying)當在(zai)疫(yi)(yi)(yi)(yi)情(qing)(qing)發(fa)生后(hou)按照(zhao)建(jian)(jian)設(she)工(gong)(gong)程施(shi)(shi)(shi)工(gong)(gong)合(he)同(tong)的(de)(de)(de)(de)有(you)關(guan)(guan)規定向建(jian)(jian)設(she)單(dan)(dan)(dan)位(wei)(wei)發(fa)出報(bao)告(gao)，詳細(xi)說(shuo)明(ming)(ming)(ming)因疫(yi)(yi)(yi)(yi)情(qing)(qing)所受到的(de)(de)(de)(de)影響以及(ji)工(gong)(gong)期(qi)延誤(wu)的(de)(de)(de)(de)情(qing)(qing)況。施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)若未能在(zai)疫(yi)(yi)(yi)(yi)情(qing)(qing)發(fa)生后(hou)及(ji)時向建(jian)(jian)設(she)單(dan)(dan)(dan)位(wei)(wei)發(fa)出通(tong)知，施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)應(ying)當及(ji)時向建(jian)(jian)設(she)單(dan)(dan)(dan)位(wei)(wei)補充提交(jiao)報(bao)告(gao)，說(shuo)明(ming)(ming)(ming)疫(yi)(yi)(yi)(yi)情(qing)(qing)的(de)(de)(de)(de)詳細(xi)情(qing)(qing)況、工(gong)(gong)期(qi)延誤(wu)的(de)(de)(de)(de)詳細(xi)情(qing)(qing)況、工(gong)(gong)期(qi)應(ying)順延的(de)(de)(de)(de)天數、索(suo)賠的(de)(de)(de)(de)金額。施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)應(ying)當向建(jian)(jian)設(she)單(dan)(dan)(dan)位(wei)(wei)進行工(gong)(gong)期(qi)索(suo)賠，并及(ji)時形(xing)成有(you)效簽證(zheng)(zheng)。其次(ci)，施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)應(ying)當核查自身是否防止損(sun)(sun)失(shi)進一步(bu)擴(kuo)大，例如及(ji)時撤出暫不需要的(de)(de)(de)(de)施(shi)(shi)(shi)工(gong)(gong)人員及(ji)機械(xie)等。同(tong)時，施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)應(ying)當按照(zhao)本(ben)《通(tong)知》的(de)(de)(de)(de)要求及(ji)時復工(gong)(gong)，避免工(gong)(gong)期(qi)進一步(bu)延誤(wu)。最后(hou)，施(shi)(shi)(shi)工(gong)(gong)單(dan)(dan)(dan)位(wei)(wei)應(ying)當保存本(ben)次(ci)疫(yi)(yi)(yi)(yi)情(qing)(qing)屬于(yu)不可(ke)抗(kang)力的(de)(de)(de)(de)證(zheng)(zheng)明(ming)(ming)(ming)文件(jian)、存在(zai)工(gong)(gong)期(qi)延誤(wu)的(de)(de)(de)(de)證(zheng)(zheng)明(ming)(ming)(ming)文件(jian)以及(ji)疫(yi)(yi)(yi)(yi)情(qing)(qing)與(yu)(yu)工(gong)(gong)期(qi)延誤(wu)之間存在(zai)因果(guo)(guo)關(guan)(guan)系(xi)的(de)(de)(de)(de)證(zheng)(zheng)明(ming)(ming)(ming)文件(jian)。證(zheng)(zheng)明(ming)(ming)(ming)本(ben)次(ci)疫(yi)(yi)(yi)(yi)情(qing)(qing)屬于(yu)不可(ke)抗(kang)力的(de)(de)(de)(de)證(zheng)(zheng)明(ming)(ming)(ming)文件(jian)主(zhu)要有(you)認定本(ben)次(ci)疫(yi)(yi)(yi)(yi)情(qing)(qing)性(xing)質的(de)(de)(de)(de)官方(fang)文件(jian)、主(zhu)流媒(mei)體(ti)的(de)(de)(de)(de)相關(guan)(guan)報(bao)道等。證(zheng)(zheng)明(ming)(ming)(ming)疫(yi)(yi)(yi)(yi)情(qing)(qing)與(yu)(yu)工(gong)(gong)期(qi)延誤(wu)存在(zai)因果(guo)(guo)關(guan)(guan)系(xi)的(de)(de)(de)(de)文件(jian)主(zhu)要有(you)各(ge)地停工(gong)(gong)停產的(de)(de)(de)(de)限制政(zheng)策、各(ge)地交(jiao)通(tong)管制政(zheng)策、人員隔(ge)離政(zheng)策等。《通知》并未(wei)就工(gong)期(qi)(qi)順(shun)延(yan)的(de)(de)起止作出明確界定(ding)(ding)，建設(she)單(dan)(dan)位和施工(gong)企業應(ying)當結(jie)合(he)其所在地(di)(di)政府(fu)有(you)關規(gui)定(ding)(ding)，區分不同情形合(he)理確定(ding)(ding)順(shun)延(yan)的(de)(de)工(gong)期(qi)(qi)。地(di)(di)方政府(fu)將防疫(yi)期(qi)(qi)間的(de)(de)建設(she)項(xiang)(xiang)目區分為(wei)復工(gong)和未(wei)復工(gong)兩類。針對(dui)防疫(yi)期(qi)(qi)間復工(gong)項(xiang)(xiang)目，應(ying)當由建設(she)單(dan)(dan)位和施工(gong)單(dan)(dan)位友好協商合(he)理確定(ding)(ding)順(shun)延(yan)的(de)(de)工(gong)期(qi)(qi)。針對(dui)防疫(yi)期(qi)(qi)間未(wei)復工(gong)的(de)(de)項(xiang)(xiang)目，不同地(di)(di)方政府(fu)進行了不同的(de)(de)規(gui)定(ding)(ding)。有(you)的(de)(de)地(di)(di)方政府(fu)規(gui)定(ding)(ding)未(wei)復工(gong)的(de)(de)項(xiang)(xiang)目，順(shun)延(yan)的(de)(de)工(gong)期(qi)(qi)應(ying)當從當地(di)(di)政府(fu)決定(ding)(ding)啟動(dong)重大(da)突發公共(gong)衛生時間一級響應(ying)之日起至解(jie)除之日止。[2] 有的地方政府則規定未(wei)復(fu)工(gong)(gong)的項目，順(shun)延工(gong)(gong)期一般應從接到工(gong)(gong)程(cheng)所(suo)在地管理部門停工(gong)(gong)通知之日起，至接到復(fu)工(gong)(gong)許可之日止(zhi)。[3] 另外，《通知》要(yao)求地方住建部(bu)門根據(ju)實(shi)際情況依法與建設單位協商合理確定順延合同工(gong)期。因此(ci)，若(ruo)建設單位與施工(gong)單位就工(gong)期順延一(yi)事無法達(da)成一(yi)致意見的(de)，可以考慮(lv)請當(dang)地住(zhu)建部門(men)作為第三方協助解決該問題。2. 停工損失
對(dui)于停工損(sun)失(shi)的(de)(de)處(chu)理(li)方(fang)(fang)式與工期順延基本(ben)一致。建設單(dan)位與施(shi)工單(dan)位應(ying)當首先明確合同對(dui)于不可(ke)抗力造成的(de)(de)停工損(sun)失(shi)是否(fou)有明確約(yue)定(ding)，有約(yue)定(ding)的(de)(de)雙方(fang)(fang)當事人應(ying)當按(an)照(zhao)約(yue)定(ding)方(fang)(fang)式處(chu)理(li)。合同如果沒有明確約(yue)定(ding)的(de)(de)，則建設單(dan)位與施(shi)工單(dan)位應(ying)當參照(zhao)合同法的(de)(de)規定(ding)以及《通(tong)知》的(de)(de)要求，由雙方(fang)(fang)通(tong)過協商的(de)(de)方(fang)(fang)式合理(li)分擔停工損(sun)失(shi)。3. 人工費及材料費的漲價
因疫情防控措施導致部(bu)分地區交通、物流(liu)受(shou)到(dao)影響(xiang)，施工人(ren)員(yuan)無法及時返崗，建筑材料供應短缺。在復(fu)工后的短時間(jian)內可能出(chu)現人(ren)工費、材料費大幅度(du)上(shang)漲的問(wen)題。建設單位(wei)與施工單位(wei)應當在友好(hao)協(xie)商的基礎上(shang)妥善解決這一(yi)問(wen)題。若施(shi)(shi)工(gong)合(he)同專(zhuan)用條(tiao)(tiao)款部分對(dui)于人工(gong)費(fei)和(he)材料費(fei)的(de)調整(zheng)情(qing)形及調整(zheng)方式作出明(ming)確約(yue)定(ding)(ding)的(de)，施(shi)(shi)工(gong)單(dan)位可(ke)以按照合(he)同約(yue)定(ding)(ding)向(xiang)建(jian)設單(dan)位主張(zhang)調整(zheng)相(xiang)應費(fei)用。施(shi)(shi)工(gong)單(dan)位應當(dang)按照合(he)同規定(ding)(ding)的(de)期(qi)限(xian)和(he)條(tiao)(tiao)件(jian)及時向(xiang)建(jian)設單(dan)位提交索賠文件(jian)，建(jian)設單(dan)位應當(dang)在合(he)同約(yue)定(ding)(ding)的(de)期(qi)限(xian)內對(dui)施(shi)(shi)工(gong)單(dan)位提交的(de)索賠文件(jian)進行(xing)審查(cha)并作出回復。（2）合(he)同無約定(ding)或雙方(fang)未(wei)能達成一致(zhi)意(yi)見(jian)的若(ruo)(ruo)雙(shuang)(shuang)方協商不(bu)(bu)成(cheng)或(huo)合(he)(he)同沒有(you)明確(que)約定的(de)(de)(de)，筆者認為應當適用(yong)情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)原則進(jin)行調整。情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)原則是指合(he)(he)同有(you)效成(cheng)立后，因(yin)(yin)(yin)不(bu)(bu)可歸責于雙(shuang)(shuang)方當事(shi)人(ren)的(de)(de)(de)原因(yin)(yin)(yin)發(fa)生情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)，致(zhi)合(he)(he)同之基礎動搖(yao)或(huo)喪失，若(ruo)(ruo)繼(ji)續(xu)維持(chi)合(he)(he)同原有(you)效力(li)顯失公平，允許變(bian)更(geng)合(he)(he)同內容或(huo)者解除合(he)(he)同。按(an)照情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)原則的(de)(de)(de)相關理論，情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)與(yu)不(bu)(bu)可抗(kang)力(li)相互排斥，也即造(zao)成(cheng)情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)的(de)(de)(de)不(bu)(bu)得是不(bu)(bu)可抗(kang)力(li)事(shi)件(jian)。盡管本(ben)次疫(yi)情(qing)(qing)(qing)(qing)屬于不(bu)(bu)可抗(kang)力(li)事(shi)件(jian)，但是客觀上(shang)疫(yi)情(qing)(qing)(qing)(qing)并不(bu)(bu)一定是導致(zhi)人(ren)工(gong)費(fei)及(ji)材料(liao)費(fei)漲(zhang)價的(de)(de)(de)直接原因(yin)(yin)(yin)。本(ben)次疫(yi)情(qing)(qing)(qing)(qing)對我國經濟各(ge)個(ge)方面(mian)均(jun)造(zao)成(cheng)了沖(chong)擊，疫(yi)情(qing)(qing)(qing)(qing)的(de)(de)(de)影響具有(you)復(fu)雜性，人(ren)工(gong)費(fei)及(ji)材料(liao)費(fei)漲(zhang)價可能是由于多方面(mian)因(yin)(yin)(yin)素所導致(zhi)的(de)(de)(de)。因(yin)(yin)(yin)此，若(ruo)(ruo)出(chu)現人(ren)工(gong)費(fei)和材料(liao)費(fei)大幅度漲(zhang)價的(de)(de)(de)情(qing)(qing)(qing)(qing)況時，施工(gong)單(dan)位援(yuan)引情(qing)(qing)(qing)(qing)勢(shi)變(bian)更(geng)條款(kuan)主張要求相關費(fei)用(yong)并不(bu)(bu)會與(yu)不(bu)(bu)可抗(kang)力(li)規(gui)定相違背。4. 疫情防護費問題
關于(yu)疫情防護(hu)費問題，筆者已經撰(zhuan)文發布于(yu)2月(yue)8日及2月(yue)16日的微信公眾號建緯律師，本部分不再就疫情防護(hu)費問題展開論述。[4]筆者(zhe)認為(wei)疫(yi)情(qing)防護費應(ying)作為(wei)措施(shi)項目費，是新型冠狀病毒感染的(de)(de)肺炎疫(yi)情(qing)引發的(de)(de)不可(ke)(ke)預(yu)見費用，增加的(de)(de)疫(yi)情(qing)防護費應(ying)按照建設工(gong)程(cheng)(cheng)施(shi)工(gong)合(he)同確定的(de)(de)價(jia)款調整、索賠程(cheng)(cheng)序在(zai)建設單(dan)位(wei)(wei)(wei)和施(shi)工(gong)單(dan)位(wei)(wei)(wei)之間合(he)理分擔。《通(tong)知》是明確提出因疫(yi)情(qing)防控(kong)增加的(de)(de)防疫(yi)費用可(ke)(ke)計入工(gong)程(cheng)(cheng)造價(jia)。我們知道(dao)能計入工(gong)程(cheng)(cheng)造價(jia)的(de)(de)費用原則上(shang)應(ying)由建設單(dan)位(wei)(wei)(wei)承擔，但(dan)施(shi)工(gong)單(dan)位(wei)(wei)(wei)仍應(ying)當注(zhu)意(yi)合(he)同中是否(fou)存在(zai)例外約定由施(shi)工(gong)單(dan)位(wei)(wei)(wei)承擔的(de)(de)情(qing)形。針對疫(yi)(yi)(yi)情期間新增建設工程(cheng)，發承包雙方(fang)(fang)可在簽(qian)訂合同時依據(ju)《通知》的要求直(zhi)接將疫(yi)(yi)(yi)情防(fang)(fang)護費列入(ru)工程(cheng)造(zao)價。而對于復工的建設工程(cheng)，發承包雙方(fang)(fang)則(ze)應當通過簽(qian)訂補充(chong)協議(yi)或其他協商方(fang)(fang)式將疫(yi)(yi)(yi)情防(fang)(fang)護費用計入(ru)合同價款中。《通(tong)知》從減少(shao)建(jian)設(she)單位對施工(gong)單位欠款(kuan)(kuan)(kuan)、規范工(gong)程(cheng)(cheng)價款(kuan)(kuan)(kuan)結算、嚴格執行保證金制(zhi)度三個方面(mian)減輕施工(gong)企(qi)業(ye)(ye)資(zi)(zi)金負擔。《通(tong)知》要(yao)(yao)求(qiu)加快清(qing)理政府(fu)(fu)(fu)部門和國有企(qi)業(ye)(ye)拖(tuo)欠民營(ying)企(qi)業(ye)(ye)賬款(kuan)(kuan)(kuan)，建(jian)立和完(wan)善防(fang)范拖(tuo)欠長效機(ji)(ji)制(zhi)，嚴禁政府(fu)(fu)(fu)和國有投(tou)資(zi)(zi)工(gong)程(cheng)(cheng)以各(ge)種方式要(yao)(yao)求(qiu)企(qi)業(ye)(ye)帶資(zi)(zi)承包，建(jian)設(she)單位要(yao)(yao)按(an)照合同(tong)約定按(an)時(shi)(shi)足額(e)支(zhi)付(fu)工(gong)程(cheng)(cheng)款(kuan)(kuan)(kuan)，避免形成(cheng)(cheng)新的(de)拖(tuo)欠。《通(tong)知》強(qiang)調了政府(fu)(fu)(fu)和國有投(tou)資(zi)(zi)工(gong)程(cheng)(cheng)不(bu)得以審計機(ji)(ji)關的(de)審計結論作為(wei)工(gong)程(cheng)(cheng)結算依據，建(jian)設(she)單位不(bu)得以未(wei)完(wan)成(cheng)(cheng)決算審計為(wei)由，拒絕或拖(tuo)延辦理工(gong)程(cheng)(cheng)結算和工(gong)程(cheng)(cheng)款(kuan)(kuan)(kuan)支(zhi)付(fu)。《通(tong)知》要(yao)(yao)求(qiu)保證金到期應當及時(shi)(shi)予以返還，同(tong)時(shi)(shi)提出疫情防(fang)控期間新開工(gong)的(de)工(gong)程(cheng)(cheng)項目，可暫不(bu)收(shou)取(qu)農民工(gong)工(gong)資(zi)(zi)保證金。
疫(yi)情雖(sui)然來勢(shi)洶(xiong)洶(xiong)，但是在(zai)舉國眾志成城的努力(li)下(xia)，疫(yi)情控制已經(jing)初見成效。建(jian)設(she)(she)單位(wei)(wei)和(he)施工(gong)(gong)單位(wei)(wei)應(ying)當積極(ji)響應(ying)《通(tong)知》的要(yao)求(qiu)，積極(ji)組織符合條件的建(jian)設(she)(she)項目復工(gong)(gong)，努力降低疫情對我國(guo)經濟造成(cheng)的不(bu)利影(ying)響，助力全面建(jian)成(cheng)小康(kang)社會！
[1] 《四(si)川省住房和城(cheng)鄉建(jian)設廳(ting)關于印發<住房城(cheng)鄉建(jian)設領(ling)域應對新型冠狀病毒肺炎疫情分(fen)區分(fen)類防(fang)控工作指引>的通知》；
[2] 《陜西省住房和城鄉建設廳關于新(xin)型冠狀病毒(du)肺炎疫情防控期間建設工程(cheng)計價(jia)有關的(de)通知》（陜建發〔2020〕34號）；
[3] 《青(qing)島市住房和城鄉建(jian)設局(ju)關于新型冠(guan)狀病毒肺炎(yan)疫(yi)情防控期間建(jian)設工程計價(jia)有關事項的通知》（青(qing)建(jian)管字〔2020〕3號）；
[4] 【建(jian)緯觀點】建(jian)筑(zhu)行業如何(he)應對新冠疫情(qing)所產生的疫情(qing)防護(hu)費問題，【建(jian)緯觀點】再(zai)談建(jian)筑(zhu)行業的疫情(qing)防護(hu)費問題。
(本文轉載自微信公眾號(hao)：中國勘察設計雜志）
