将工程总承包作为提升核心竞争力战略选择——从《征求意见稿》谈建筑业企业高质量发展现实路径-pg电子游戏官网入口
发布时间：
2019-07-01
日前，住房和城乡建设部办公厅、国家发展改革委办公厅联合发出《房屋建筑和市政基础设施项目工程总承包管理办法（征求意见稿）》（以下简称“征求意见稿”），这也是继2017年之后住房和城乡建设部第二次就该办法征求意见。这一方面说明国家对建筑业高质量发展的迫切要求，另一方面也表明国家推动工程建设项目组织实施方式改革的决心。
鉴于国家推进工程总承包发展的力度、速度，如果业界没有更多意见，该管理办法很快将变成正式部门规章，成为指导建筑业进一步深化改革的“利器”。当此之时，认真研读征求意见稿，对于行业企业实现进一步高质量发展意义重大。
征求意见稿与2017年管理办法对比
对比2017年版管理办法，征求意见稿强化了哪些要求、放松了哪些规定、界定了哪些责任，是业内人士最关心的。
细化发包要求 收紧准入条件
在发包阶段和条件方面，征求意见稿相比2017年管理办法更加细化：企业投资项目应当在核准或备案后，进行工程总承包项目发包。政府投资项目原则上应当在初步设计审批完成后进行工程总承包项目发包；按照国家有关规定简化报批文件和审批程序的政府投资项目，应当在完成投资决策审批后进行工程总承包项目发包。对企业投资项目和政府投资项目发包分别作出规定，有利于不同性质项目的顺利推进。
关于工程总承包单位条件，征求意见稿明确提出，政府投资项目的项目建议书、可行性研究报告、初步设计文件编制单位及其评估单位，不得成为该项目的工程总承包单位；工程总承包项目的代建单位、项目管理单位、监理单位、造价咨询单位、招标代理单位，不得同时作为该项目的工程总承包单位。也就是说，除了设计单位和施工单位，上述这些单位要么只能作为工程总承包单位，要么只能从事资质规定内的具体业务，不能同时兼顾。
放宽适用范围 合理确定价格
对于工程总承包方式的适用项目，此次征求意见稿明确提出“装配式建筑原则上采用工程总承包方式。鼓励政府投资项目采用工程总承包方式”，删除了“建设单位应当根据工程项目的规模和复杂程度等合理选择建设项目组织实施方式。政府投资项目、国有资金占控股或者主导地位的项目应当优先采用工程总承包方式，采用建筑信息模型技术的项目应当积极采用工程总承包方式”，相当于放宽了适用范围，将主导权更多地还给了业主、还给了市场。
在合同价格形式方面，之前的管理办法提出工程总承包项目“宜采用固定总价合同”，征求意见稿对于企业投资项目和政府投资项目作了分别规定：企业投资项目的工程总承包项目宜采用总价合同，政府投资项目的工程总承包应合理确定合同价格形式。采用总价合同的，除合同约定可以调整的情形外，合同总价一般不予调整。
明确相关职责 厘清主体责任
征求意见稿明确了“投资主管部门依据投资项目审批、核准、备案的相关法律法规履行相应监督管理职责”，之前的管理办法中没有投资管理职责方面的描述。而在评标委员会组成方面，则增加了建设单位代表。在安全责任方面，征求意见稿提出“分包不免除工程总承包对全部建设工程的质量责任”。
征求意见稿还提出，工程总承包单位仅具有相应设计资质的，应将施工业务进行分包；仅具有相应施工资质的，应将设计业务进行分包。工程总承包单位自行实施设计的，不得分包主体部分的设计；自行实施施工的，不得分包主体部分的施工。
新形势下建筑业企业应如何抉择
在工程总承包模式即将全面推开之际，行业人士应当明确此项改革落地的必然性。一是社会和行业发展形势使然。外驱力表现为社会、经济发展对建筑业提出了新的要求，粗放型发展模式已不适应高质量发展要求；内驱力表现为以往施工总承包生产方式相对落后，易造成多头管理、责任主体多且权责不清晰，导致建设成本高、工期拖延、安全质量问题频发。二是建筑业参与国际竞争、对接国际市场的必然选择。推行工程总承包模式，是行业企业走向更广阔市场的重要前提。
据不完全统计，自2016年中共中央、国务院《关于进一步加强城市规划建设管理工作的若干意见》中强调“深化建设项目组织实施方式改革，推广工程总承包制”以来，国家和地方政府相继出台了100多个推进工程总承包发展的文件。此次征求意见稿精神，也与不久前国务院发布的《政府投资条例》保持了高度一致。在如此短的时间内密集出台如此多的文件，说明在新形势面前，建筑业企业多年来只管闷头发展的策略已经行不通，行业同仁必须看清未来改革前进的大方向保持战略清醒，坦然面对挑战。
回顾建筑业发展史、仔细研究征求意见稿，可以发现，虽然工程总承包改革是关乎整个建筑业的大事，但建筑施工企业作为中坚力量，应当积极转型，做工程总承包改革先锋。而实际上，政策要求和实践均已充分说明，施工企业主导的工程总承包项目更容易成功。2017年，国务院办公厅在建筑业改革发展的顶层设计文件——《关于促进建筑业持续健康发展的意见》中，要求加快推行工程总承包。同年5月，住房城乡建设部印发《建筑业发展“十三五”规划》，提出“十三五”时期，要发展行业的工程总承包、施工总承包管理能力，培育一批具有先进管理技术和国际竞争力的总承包企业。从政策要求看，工程总承包企业同时具备“先进管理技术”和“国际竞争力”是硬性要求。近年来，不少施工企业矢志改革、提升“走出去”竞争能力，已经比其他行业企业率先一步达到了这个要求。而从实践来看，工程总承包项目的核心是设计、采购、施工的一体化，在以往的工程建设实践中，能够在这几方面同时积累丰富经验、具备短期内打通各个环节能力的，施工企业首当其冲。这就意味着，在向工程总承包模式转型过程中，施工企业拥有一定的“先发”优势。从根本上说，建设组织实施方式改革，是效率驱动、创新驱动，不是简单的业务叠加，能否实现社会、业主、承包商共赢，这才是工程总承包的价值所在。建筑业企业应当意识到，在以效率、效益、创新为第一原则的未来竞争中，把工程总承包当作提高服务质量、提升核心能力的手段，是明智的抉择。
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