【线上云德】疫情期间律师说（十四）|建筑行业如何应对新冠疫情所产生的疫情防护费问题

   防控新型冠状病毒肺炎疫情，政府承担防疫责任外，企业作为疫情防控责任主体，也需提供相应的防控用品、防控设备，进行环境卫生整治和办公场所消认真切实做好疫情预防工作。与此同时施工单位在履行建设工程施工合同时也应履行疫情预防义务，此时产生的疫情防护费由谁承担。

In order to prevent and control novelcoronavirus pneumonia, the government should bear the responsibility forepidemic prevention. As the main body responsible for epidemic prevention andcontrol, enterprises should also provide corresponding prevention and controlsupplies and equipment, carry out environmental sanitation improvement andoffice space elimination, and earnestly do a good job in epidemic prevention.At the same time, the construction unit should also fulfill the obligation ofepidemic prevention when performing the construction contract of theconstruction project. Will who bear the epidemic prevention fee incurred atthis time.

    一、疫情防护费的内容及性质（Contents and Nature of Epidemic ProtectionFees）

（一）疫情防护费的内容（Contents of epidemic protection fees）

疫情防护费，是施工人在合同义务的过程中，为避免疫情在工地传播，保障合同义务的顺利履行，采取疫情防控和服务保障措施等产生的费用。主要包括：成立疫情防控小组、设置隔离观察区域、设置安全用餐食堂现场、现场进行全天候全封闭管理、办公生活区域消毒、防护物资购买储备、防护安全教育等费用。

Epidemic protection fees are the expensesincurred by the constructor in taking epidemic prevention and control measuresand service guarantee measures in order to avoid the spread of the epidemic onthe construction site and ensure the smooth performance of the contractobligations during the process of the contract obligations. It mainly includes:setting up epidemic prevention and control teams, setting up isolatedobservation areas, setting up safe dining canteens on site, carrying out all-weathertotally enclosed management on site, disinfection of office and living areas,purchase and storage of protective materials, protection and safety educationand other expenses.

（二）疫情防护费的性质（The nature of the epidemic protection fee ）

疫情防护费是措施项目费。根据《住房城乡建设部、财政部关于印发<建筑安装工程费用项目组成>的通知》，规定：其中措施项目费是指为完成建设工程施工，发生于该工程施工前和施工过程中的技术、生活、安全、环境保护等方面的费用；疫情防护的目的是保障工作人员健康，确保工程项目施工顺利。因此我们认为疫情防护费应属工程造价中的措施项目费。

The epidemic protection fee is the cost of themeasure project. According to the Notice of the Ministry ofHousing and Urban-Rural Development and the Ministry of Finance on Printing andDistributing the Composition of Construction and Installation Project Costs, itis stipulated that the project cost of measures refers to the costs oftechnology, life, safety, environmental protection and other aspects incurredbefore and during the construction of the project in order to complete theconstruction of the project. The purpose of epidemic prevention is to protectthe health of staff and ensure the smooth construction of the project.Therefore, we believe that the epidemic protection fee should belong to themeasure project fee in the project cost.

    二、疫情防护费的承担主体（the main body of epidemic protection fees）

  （一）原则上的责任承担主体（inprinciple, the subject of responsibility）

鉴于目前的客观情况，新冠肺炎疫情属于《中华人民共和国民法总则》第一百八十条和《中华人民共和国合同法》第一百一十七条规定的不可抗力事件。

In view ofthe current objective situation, the novel coronavirus pneumonia epidemic is aforce majeure event stipulated in Article 180 of the General Provisions of theCivil Law of the People's Republic of China and Article 117 of the Contract Lawof the People's Republic of China.

   根据《建设工程工程量清单计价规范》第9.11.1条的规定：“因不可抗力事件导致的费用，发、承包双方应按以下原则分别承担并调整工程价款。其中的第4款规定：停工期间，承包人应发包人要求留在施工场地的必要的管理人员及保卫人员的费用由发包人承担；但是，发包人和承包人合理分担疫情防护费的前提是承包人履行建设工程施工合同不存在迟延履行等违约情况情况，否则，承包人不得要发包人合理分担疫情防护费。

  According toArticle 9.11. 1 of the Code for Valuation with Bill of Quantities of Construction Projects: "For the expenses caused by force majeure events,both parties shall bear and adjust the project price respectively according tothe following principles. Paragraph 4 stipulates that during the shutdownperiod, the Contractor shall bear the expenses of the necessary managementpersonnel and security personnel required by the Employer to stay on theconstruction site. However, the premise for the Employer and the Contractor toreasonably share the epidemic protection fee is that the Contractor does nothave any breach of contract such as delay in performance of the constructioncontract. Otherwise, the Contractor shall not require the Employer toreasonably share the epidemic protection fee.

（二）例外性责任承担主体（Subject ofExceptional Liability ）

1．根据发包人指令产生的疫情防护费（Epidemicprotection fee generated according to the Employer's instructions ）

若发包人指令从而产生疫情防护费发包人应当就增加工作内容向承包人支付对价。承包人也可以根据建发包人的指令内容主张疫情防护费用。

If the Employer instructs the Employer togenerate epidemic protection fees, the Employer shall pay consideration to theContractor for increasing the work content. The Contractor may also claim thecost of epidemic protection according to the instructions of the Employer.

若地区政府未发布相关通知，发包人也未要求施工人采取防控措施。承包人可提出“合理化建议”请求发包人指示疫情防护。

   If the regional government does not issuerelevant notices, the Employer does not require the constructor to takeprevention and control measures. The Contractor may put forward"rationalization proposals" and request the Employer to instruct theepidemic prevention.

2．项目所在地政府对疫情防护费的承担进行明确规定的。（Thelocal government of the project clearly stipulates the commitment of epidemicprotection fees. ）

依据地方政策的规定，但是当地政府有明确规定，承包人也不是必然可以追加疫情防护费。如果合同中约定法律法规变化造成的费用增加由施工人承担，则施工人难以通过该方式主张疫情防护费。

  According to the provisions of the localpolicy, but the local government has a clear stipulation, the contractor is notnecessarily able to increase the epidemic protection fee. If it is agreed inthe contract that the cost increase caused by changes in laws and regulationsshall be borne by the constructor, it is difficult for the constructor to claimthe epidemic protection fee through this method.

   三、疫情防护费的责任承担方式（the epidemicprotection fee responsibility to bear the way）

根据《建设工程工程量清单计价规范》规定，施工人提出调整措施项目费，应当事先将计划实施的措施项目方案提交发包人确认，详细说明变化情况，经双方确认后执行。如果疫情防护费属于采用单价计算的措施项目费，应按照实际发生变化的措施项目，按照合同约定确定单价。如果疫情防护费属于按总价（或系数）计算的措施项目费，按照实际发生变化的措施项目，按照合同约定确定总价。因疫情不可抗力事件，施工人应以书面形式通知建设单位和监理单位说明详细情况，并提供证明，疫情是持续发生的不可抗力事件，所以施工人及时向建设单位和监理单位提交中间报告，说明情况，并于不可抗力事件结束后28天内提交最终报告及有关资料。

According to the provisions of the Code forPricing with Bill of Quantities of Construction Projects, when the constructorproposes to adjust the project cost of the measures, he shall submit theplanned project plan of the measures to the Employer for confirmation inadvance, explain the changes in detail, and implement it after confirmation byboth parties. If the epidemic protection fee belongs to the measure project feecalculated by unit price, the unit price shall be determined according to theactual changed measure project and the contract agreement. If the epidemicprotection fee belongs to the measure project fee calculated according to thetotal price (or coefficient), the total price shall be determined according tothe actual changed measure project and the contract agreement. Due to theepidemic and force majeure events, The constructor shall notify theconstruction unit and the supervision unit in writing to explain the detailsand provide proof that the epidemic situation is a continuous force majeureevent, so the constructor shall timely submit an intermediate report to theconstruction unit and the supervision unit to explain the situation, and submitthe final report and relevant materials within 28 days after the end of theforce majeure event.

在确定疫情防护费数额或计算方式后，对于发包人应承担的疫情防护费，施工人可以通过变更或索赔的方式进行。

After determining the amount or calculationmethod of the epidemic protection fee, th, e constructor may change or claim theepidemic protection fee to be borne by the Employer.

  （一）变更方式（Method of change）

除合同有约定外，施工人可参考《建设工程施工合同（示范文本）》第10.1条规定进行处理，“除专用合同条款另有约定外，合同履行过程中发生以下情形的，应按照本条约定进行变更：（1）增加或减少合同中任何工作，或追加额外的工作；”以及第11.2条规定：“因法律变化引起的合同价格和工期调整，合同当事人无法达成一致的，由总监理工程师按第4.4款的约定处理。”上述情况适用于“发包人指令、施工人合理化建议被采纳”或“当地政府出台政策”的情况。

Unless otherwise agreed in the contract, theconstructor may refer to the provisions of Article 10.1 of the ConstructionContract (Model Text). "Unless otherwise agreed in the special terms ofthe contract, changes shall be made in accordance with the provisions of thisArticle in case of any of the following circumstances during the performance ofthe contract: (1) any work in the contract shall be added or reduced, oradditional work shall be added;" And Article 11.2 stipulates: "If theparties to the contract cannot reach an agreement on the adjustment of thecontract price and construction period due to legal changes, the chiefsupervision engineer shall handle it according to the agreement in Article4.4." The above situation is applicable to the situation that "theEmployer's instructions and the constructor's reasonable suggestions areadopted" or "the local government issues policies".

（二）索赔方式（Method ofclaim ）

除合同有约定外，施工人可参考《建设工程施工合同（示范文本）》第19.1条的规定处理，施工单位自知道或应当知道疫情防护费后的28天内，向监理单位递交索赔意向通知书，并说明发生索赔事件的事由，并在发出索赔意向通知书后28天内，向监理单位正式递交索赔报告，索赔报告应详细说明索赔理由以及要求追加的付款金额，并附必要的记录和证明材料疫情持续影响，施工人应间隔继续递交延续索赔通知，说明情况和记录。在疫情结束后28天内，向监理单位递交最终索赔报告，说明最终的追加付款金额，并附必要记录和证明材料。

Unless otherwise agreed in the contract, Theconstructor may refer to the provisions of Article 19.1 of the ConstructionContract (Model Text), Within 28 days after the construction unit knows orshould know the epidemic protection fee, Submit the notice of claim intentionto the supervision unit, And the reasons for the occurrence of the claim, Andwithin 28 days after the notice of intention to claim is issued, the claimreport shall be formally submitted to the supervision unit. The claim reportshall specify the reason for the claim and the amount of additional paymentrequired, and shall be accompanied by necessary records and supportingmaterials. The constructor shall continue to submit the notice of continuationof the claim at intervals, explaining the situation and records. Within 28 daysafter the end of the epidemic, submit the final claim report to the supervisionunit, stating the final additional payment amount, and attach necessary recordsand supporting materials.

四、疫情防护费的相关建议（Suggestionson Epidemic Protection Fees ）

（一）形成明确疫情防护方案（to form aclear epidemic protection plan ）

施工人应依据相关政策及规定，尽早与项目各参与方通过发函或项目会议的方式确定疫情防护实施方案，形成可量化的工作内容，并尽早获得建设单位的审批，便于后期追加疫情防护费的顺利进行。

   According to relevant policies and regulations,the constructor shall, as soon as possible, determine the implementation planof epidemic protection with all project participants by sending letters orproject meetings to form quantifiable work contents, and obtain the approval ofthe construction unit as soon as possible, so as to facilitate the smoothprogress of the additional epidemic protection fees in the later period.

（二）及时进行变更估价申请（Timelyapplication for alteration of valuation）

施工单位应在疫情防护实施方案获建设单位审批后，在14天内及时向监理人提交变更估价申请，避免逾期失权。

The construction unit shall timely submit anapplication for change of valuation to the supervisor within 14 days after theimplementation plan for epidemic prevention is approved by the constructionunit, so as to avoid overdue loss of rights.

（三）通过友好协商形式落实分担方案（Implementing the sharing plan through friendlynegotiation）

友好协商作为解决合同争议的最有效方式，施工单位应尽可能通过协商的方式与建设单位落实疫情防护费分担方案，并通过办理签证、形成会议纪要或者签订补充协议的方式进行固定。

Friendly negotiation is the most effective wayto resolve contract disputes. The construction unit shall, as far as possible,implement the epidemic protection fee sharing scheme with the construction unitthrough negotiation, and fix it by handling visas, forming meeting minutes orsigning supplementary agreements.

（四）收集疫情防护期间的证明材料以备索赔之用（Collecting proof materials during the period ofepidemic protection for the purpose of claiming compensation）

为防止事后与建设单位发生分歧，施工单位应保留疫情防护过程中所产生的相关材料。建议可固定的证明材料包括但不限于：（1）证明此次疫情为不可抗力事件的材料；（2）证明工期延误、工程量增加的材料；（3）证明实际完成增加工作量的材料。上述证明材料均应保存原件。

In order to prevent differences with theconstruction unit afterwards, the construction unit shall keep relevantmaterials generated in the process of epidemic prevention. It is suggested thatfixed certification materials include but are not limited to: (1) materialsproving that the epidemic is a force majeure event; (2) Materials proving delayin construction period and increase in engineering quantity; (3) Materialsproving the actual completion of the increased workload. The abovecertification materials shall be kept in the original.

   随着各地建筑工地的陆续复工，相信越来越多的地方政府及其住建部门会出台对疫情防护费承担问题的通知或实施意见。该类政策性文件虽非强制性规定，但其对疫情防控期间的行业发展起着至关重要的作用，亦为施工合同双方共克时艰提供了良好的协商平台，建设单位与施工单位应尽可能遵守，携手降低疫情带来的影响，以尽早恢复正常的施工进程。

As construction sites around the country resumework one after another, I believe more and more local governments and theirhousing and construction departments will issue notices or implementationopinions on the issue of bearing epidemic protection fees. Although such policydocuments are not mandatory provisions, they play a vital role in thedevelopment of the industry during the epidemic prevention and control period,and also provide a good negotiation platform for both parties to theconstruction contract to overcome difficulties together. The construction unitand the construction unit should abide by them as much as possible and jointlyreduce the impact of the epidemic so as to resume the normal constructionprocess as soon as possible.