中國建筑業協會副會長 吳慧娟
黨的十九大報(bao)告指出，中(zhong)國(guo)特色社會主義(yi)進入新(xin)時代，我國(guo)經濟已(yi)由高(gao)速(su)增(zeng)長(chang)階段轉(zhuan)向高(gao)質量(liang)發(fa)展階段，正處在轉(zhuan)變(bian)發(fa)展方(fang)式、優化經濟結構、轉(zhuan)換增(zeng)長(chang)動能的攻關期。對于我國(guo)建筑業來說，其規模快(kuai)速(su)擴張帶來的發(fa)展正在成為傳統建筑業面臨的機遇和挑戰，加(jia)快(kuai)推行(xing)工程總承包(bao)已(yi)成為建筑業改(gai)革(ge)發(fa)展的重點(dian)任(ren)務。
加快推行工程總承包的緣由
一、黨(dang)中(zhong)央國務(wu)院(yuan)高(gao)度重視。2016年，《中(zhong)共中(zhong)央國務(wu)院(yuan)關(guan)于進(jin)一步加(jia)強城市(shi)規劃建(jian)(jian)設(she)管理工(gong)作的若干意見》提出“深(shen)化建(jian)(jian)設(she)項(xiang)目組(zu)織(zhi)實施(shi)方式改革，推(tui)廣工(gong)程總(zong)承包(bao)(bao)(bao)制，加(jia)強建(jian)(jian)筑(zhu)(zhu)市(shi)場(chang)監管，嚴厲查處(chu)轉包(bao)(bao)(bao)和違(wei)法分包(bao)(bao)(bao)等行為，推(tui)進(jin)建(jian)(jian)筑(zhu)(zhu)市(shi)場(chang)誠(cheng)信體(ti)系建(jian)(jian)設(she)。”2017年，《國務(wu)院(yuan)辦公(gong)廳關(guan)于促進(jin)建(jian)(jian)筑(zhu)(zhu)業持(chi)續健(jian)康(kang)發展的意見》在完善(shan)工(gong)程建(jian)(jian)設(she)組(zu)織(zhi)模(mo)式中(zhong)提出：“加(jia)快(kuai)推(tui)行工(gong)程總(zong)承包(bao)(bao)(bao)。”全面提出了加(jia)快(kuai)推(tui)行工(gong)程總(zong)承包(bao)(bao)(bao)的各(ge)項(xiang)具體(ti)要求(qiu)。
二、建(jian)筑業(ye)(ye)(ye)改(gai)革(ge)發展的(de)重(zhong)(zhong)點任(ren)務(wu)。2006年以來，建(jian)筑業(ye)(ye)(ye)總(zong)產(chan)值持續增長，連續6年超(chao)過20%。2015年增速為(wei)2.3%，2016年回(hui)升至7.1%，2017年達到10.5%，今(jin)年第一(yi)季度為(wei)13%，整個行業(ye)(ye)(ye)進入(ru)平穩發展期。建(jian)筑業(ye)(ye)(ye)作為(wei)國民經(jing)濟(ji)的(de)支(zhi)柱產(chan)業(ye)(ye)(ye)，存在(zai)著行業(ye)(ye)(ye)發展方式(shi)粗(cu)放、監管體制機制不健(jian)全、工(gong)程(cheng)建(jian)設組織方式(shi)落后等問題(ti)。解決問題(ti)的(de)重(zhong)(zhong)點任(ren)務(wu)之(zhi)一(yi)是(shi)工(gong)程(cheng)建(jian)設組織模式(shi)的(de)完善改(gai)進。工(gong)程(cheng)建(jian)設組織模式(shi)的(de)主層(ceng)面(mian)主要(yao)包(bao)括建(jian)設單位、工(gong)程(cheng)總(zong)承(cheng)包(bao)、全過程(cheng)咨(zi)詢(xun)。打破人(ren)為(wei)分割(ge)及(ji)碎片化(hua)，責任(ren)層(ceng)次更明晰(xi)，責權(quan)利(li)更統一(yi)，培育總(zong)承(cheng)包(bao)企(qi)業(ye)(ye)(ye)及(ji)與之(zhi)配(pei)套的(de)專業(ye)(ye)(ye)企(qi)業(ye)(ye)(ye)，提升企(qi)業(ye)(ye)(ye)核心競爭力。
三、符合(he)工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)客觀規(gui)律(lv)。真正(zheng)的工(gong)(gong)(gong)程(cheng)總(zong)(zong)承包(bao)符合(he)工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)的客觀規(gui)律(lv)，有利于(yu)(yu)實現(xian)(xian)設(she)(she)計、采購(gou)、施(shi)工(gong)(gong)(gong)等各階段工(gong)(gong)(gong)作的深度融合(he)和(he)資源高效(xiao)(xiao)配置，提高工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)水平(ping)；有利于(yu)(yu)提高工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)效(xiao)(xiao)益(yi)，組織統籌管(guan)理(li)設(she)(she)計、施(shi)工(gong)(gong)(gong)等力量(liang)，降低管(guan)理(li)成(cheng)本(ben)，有效(xiao)(xiao)控制(zhi)投資，實現(xian)(xian)工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)項目利益(yi)和(he)價值最大化(hua)；有利于(yu)(yu)提升工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)質量(liang)安(an)全，發揮工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)責任主(zhu)體單一(yi)和(he)技術管(guan)理(li)優勢，降低工(gong)(gong)(gong)程(cheng)風(feng)險，確保(bao)工(gong)(gong)(gong)程(cheng)建(jian)(jian)(jian)(jian)設(she)(she)質量(liang)安(an)全和(he)效(xiao)(xiao)益(yi)；從國際經濟看工(gong)(gong)(gong)程(cheng)總(zong)(zong)承包(bao)能夠節省投資6%，縮短工(gong)(gong)(gong)期25%以上，更科(ke)學更合(he)理(li)進行(xing)工(gong)(gong)(gong)程(cheng)總(zong)(zong)承包(bao)。
四、推(tui)動“一(yi)(yi)帶(dai)一(yi)(yi)路”走出(chu)去實(shi)施(shi)(shi)。目前(qian)，我(wo)國(guo)有65家(jia)企(qi)業(ye)進入2017年度全球最大250家(jia)國(guo)際承(cheng)(cheng)包商榜單，國(guo)際業(ye)務占(zhan)比13.9%，歐洲承(cheng)(cheng)包商平均74.9%，美(mei)國(guo)承(cheng)(cheng)包商49.6%。我(wo)國(guo)對外承(cheng)(cheng)包業(ye)務雖(sui)然(ran)遍布世界190多(duo)個國(guo)家(jia)和地區(qu)，但(dan)80%以上的(de)業(ye)務集中(zhong)在(zai)亞(ya)非等新興和不發(fa)達地區(qu)。國(guo)際大型(xing)承(cheng)(cheng)包商BOT（建(jian)設(she)-經營-轉讓）、PPP（政府和社(she)會資本合作(zuo)）項(xiang)目占(zhan)75%，中(zhong)國(guo)建(jian)筑(zhu)(zhu)業(ye)企(qi)業(ye)EPC項(xiang)目及施(shi)(shi)工總(zong)承(cheng)(cheng)包項(xiang)目分別占(zhan)比44%和36%，仍處于(yu)初級(ji)發(fa)展階段。因(yin)此，加快推(tui)行工程總(zong)承(cheng)(cheng)包，促進行業(ye)轉型(xing)升(sheng)級(ji)，才能有效(xiao)提升(sheng)建(jian)筑(zhu)(zhu)業(ye)企(qi)業(ye)的(de)核心競爭力，在(zai)“一(yi)(yi)帶(dai)一(yi)(yi)路”大背(bei)景下(xia)，推(tui)動企(qi)業(ye)“走出(chu)去”戰略的(de)實(shi)施(shi)(shi)。
加快推行工程總承包的思考
一、精準跟(gen)蹤及時總(zong)結。截至目前(qian)，已有近20個(ge)地方開始推行工(gong)(gong)(gong)程(cheng)(cheng)總(zong)承包，不僅集中在化工(gong)(gong)(gong)、石油、冶(ye)金等工(gong)(gong)(gong)業工(gong)(gong)(gong)程(cheng)(cheng)，目前(qian)房屋建(jian)筑(zhu)和市政基礎設施工(gong)(gong)(gong)程(cheng)(cheng)也在積極開展。通過已開展的工(gong)(gong)(gong)程(cheng)(cheng)試點，精準跟(gen)進跟(gen)蹤，及時總(zong)結經(jing)驗教(jiao)訓，少走彎路(lu)。
二、工(gong)程總(zong)承(cheng)包(bao)核心(xin)與工(gong)程要(yao)求。工(gong)程總(zong)承(cheng)包(bao)的推行在借鑒國際成熟通(tong)行先進做法的同(tong)時(shi)要(yao)結(jie)合(he)中國國情。加快推行工(gong)程總(zong)承(cheng)包(bao)的核心(xin)點是促(cu)進設計與施工(gong)深度融合(he)，而不是簡單疊加和大拼盤(pan)，要(yao)體現(xian)經濟(ji)、技術、組(zu)織、管理、協調等資源集(ji)成高效(xiao)配置(zhi)。政府(fu)投資工(gong)程帶(dai)頭推行工(gong)程總(zong)承(cheng)包(bao)，裝配式建(jian)筑原則上應采用工(gong)程總(zong)承(cheng)包(bao)模式，鼓勵非政府(fu)工(gong)程推行工(gong)程總(zong)承(cheng)包(bao)。
三(san)、政府(fu)規范服務引導推進。加快完善(shan)(shan)工(gong)程(cheng)總(zong)承(cheng)(cheng)包(bao)(bao)相關的(de)招標投標、施工(gong)許可、竣工(gong)驗收(shou)及(ji)工(gong)程(cheng)擔保、保險等(deng)制度規定，盡快出臺管(guan)理辦法和合同示范文(wen)本等(deng)。政府(fu)要(yao)(yao)審慎包(bao)(bao)容，市場(chang)(chang)準入更注(zhu)重市場(chang)(chang)選擇，具備設計或施工(gong)承(cheng)(cheng)包(bao)(bao)資質開(kai)展(zhan)工(gong)程(cheng)總(zong)承(cheng)(cheng)包(bao)(bao)，更多交由(you)市場(chang)(chang)選擇，有利(li)于生產力的(de)發展(zhan)。加快完善(shan)(shan)信用體系，完善(shan)(shan)全國建筑(zhu)市場(chang)(chang)監管(guan)公共服務平臺，實現與國家信用信息數(shu)據(ju)共享交換(huan)，建立建筑(zhu)市場(chang)(chang)主體黑名單制度，依法依規全面公開(kai)企業和個人信用記錄。另外，還要(yao)(yao)加強事中事后監管(guan)。
四、利(li)益(yi)回避與責任(ren)(ren)關(guan)系。由(you)于(yu)工程(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)企(qi)業(ye)(ye)（施工企(qi)業(ye)(ye)）與工程(cheng)(cheng)咨(zi)詢等企(qi)業(ye)(ye)存(cun)(cun)在(zai)著制(zhi)(zhi)約關(guan)系，因此(ci)，二(er)者不(bu)可存(cun)(cun)在(zai)利(li)益(yi)關(guan)系。按照總(zong)(zong)承(cheng)包(bao)(bao)負(fu)總(zong)(zong)責的(de)原則，工程(cheng)(cheng)總(zong)(zong)承(cheng)包(bao)(bao)單(dan)(dan)位(wei)(wei)要承(cheng)擔工程(cheng)(cheng)質量安全、進度控(kong)制(zhi)(zhi)、成本管理等方面的(de)責任(ren)(ren)，對建(jian)(jian)設單(dan)(dan)位(wei)(wei)負(fu)總(zong)(zong)責，分包(bao)(bao)單(dan)(dan)位(wei)(wei)按照合同(tong)的(de)約定對總(zong)(zong)承(cheng)包(bao)(bao)單(dan)(dan)位(wei)(wei)負(fu)責，減少因責任(ren)(ren)不(bu)清對工程(cheng)(cheng)質量安全生(sheng)產的(de)影響(xiang)。企(qi)業(ye)(ye)在(zai)某(mou)方面能力不(bu)足時，要允許總(zong)(zong)承(cheng)包(bao)(bao)單(dan)(dan)位(wei)(wei)按照合同(tong)約定經(jing)建(jian)(jian)設單(dan)(dan)位(wei)(wei)同(tong)意，直接發包(bao)(bao)總(zong)(zong)承(cheng)包(bao)(bao)合同(tong)中(zhong)涵蓋的(de)其(qi)他專業(ye)(ye)業(ye)(ye)務(wu)。利(li)益(yi)和責任(ren)(ren)關(guan)系要注意防止轉包(bao)(bao)掛靠，總(zong)(zong)包(bao)(bao)“包(bao)(bao)而不(bu)管”。
五(wu)、現有企(qi)(qi)業(ye)(ye)(ye)發展問(wen)題。在中國建(jian)筑業(ye)(ye)(ye)企(qi)(qi)業(ye)(ye)(ye)中，并不是(shi)(shi)所(suo)(suo)有的(de)企(qi)(qi)業(ye)(ye)(ye)都具(ju)有工程(cheng)總承(cheng)包能力(li)的(de)，我(wo)們的(de)企(qi)(qi)業(ye)(ye)(ye)多(duo)數不是(shi)(shi)大而全就是(shi)(shi)小而全，很少能夠達(da)到專(zhuan)(zhuan)、精、實、細(xi)。未來企(qi)(qi)業(ye)(ye)(ye)的(de)發展有兩種(zhong)情(qing)況(kuang)：一(yi)種(zhong)是(shi)(shi)鼓勵龍頭(tou)建(jian)筑與工程(cheng)設計企(qi)(qi)業(ye)(ye)(ye)（尤其是(shi)(shi)特(te)級和大型(xing)(xing)工程(cheng)設計企(qi)(qi)業(ye)(ye)(ye)）做(zuo)優做(zuo)強(qiang)做(zuo)大，另一(yi)種(zhong)是(shi)(shi)大量專(zhuan)(zhuan)業(ye)(ye)(ye)特(te)色鮮明的(de)專(zhuan)(zhuan)業(ye)(ye)(ye)企(qi)(qi)業(ye)(ye)(ye)提升專(zhuan)(zhuan)業(ye)(ye)(ye)能力(li)，做(zuo)專(zhuan)(zhuan)做(zuo)精做(zuo)細(xi)做(zuo)實。龍頭(tou)企(qi)(qi)業(ye)(ye)(ye)與專(zhuan)(zhuan)業(ye)(ye)(ye)企(qi)(qi)業(ye)(ye)(ye)開展合作，各取所(suo)(suo)長，優勢互(hu)補，避免同質化競(jing)爭，形(xing)成良好的(de)行業(ye)(ye)(ye)生態(tai)。企(qi)(qi)業(ye)(ye)(ye)本身要(yao)找準定位，改變傳統(tong)人力(li)資源（培養復合型(xing)(xing)人才）及傳統(tong)組織管理體系，提高技(ji)術與管理水平，增強(qiang)企(qi)(qi)業(ye)(ye)(ye)核心(xin)競(jing)爭力(li)。（中國建(jian)設報）
