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各省、自治(zhi)區住房(fang)城(cheng)鄉建(jian)(jian)設(she)廳(ting)，直轄市建(jian)(jian)委，新疆生(sheng)產建(jian)(jian)設(she)兵團住房(fang)城(cheng)鄉建(jian)(jian)設(she)局，國(guo)家(jia)發展改革委、財政部、人力資(zi)源社會保障(zhang)部、銀(yin)保監會辦公廳(ting)：

為(wei)全(quan)面(mian)貫徹黨的(de)(de)十九(jiu)大和十九(jiu)屆二中、三(san)中全(quan)會精神，深入落實(shi)《國務(wu)院(yuan)辦(ban)公廳(ting)關于促進建(jian)筑業(ye)持續健(jian)康發(fa)展的(de)(de)意見(jian)(jian)》（國辦(ban)發(fa)〔2017〕19號），加快推進工程(cheng)擔保制度建(jian)設，完善(shan)建(jian)筑市場(chang)監管機制，促進建(jian)筑業(ye)持續健(jian)康發(fa)展，我部(bu)研究起草(cao)了(le)《關于加快推進實(shi)施工程(cheng)擔保制度的(de)(de)指導意見(jian)(jian)（征(zheng)(zheng)求意見(jian)(jian)稿(gao)）》。現送你們征(zheng)(zheng)求意見(jian)(jian)，請(qing)于2018年7月(yue)15日前將意見(jian)(jian)函(han)告我部(bu)建(jian)筑市場(chang)監管司。

聯系人及電話：張(zhang)　娟　010-58933262

附(fu)件：關于加快推進實(shi)施工(gong)程擔保制(zhi)度的指導意(yi)見（征求意(yi)見稿(gao)）

中華人(ren)民共和國住房和城鄉(xiang)建設部辦公廳

2018年7月2日

附件(jian)

關于加快推進實施(shi)工程擔保制(zhi)度的指導(dao)意見

（征(zheng)求意見稿）

工(gong)(gong)(gong)(gong)程(cheng)(cheng)擔(dan)(dan)保(bao)是(shi)(shi)防范和化(hua)解工(gong)(gong)(gong)(gong)程(cheng)(cheng)風(feng)險(xian)的重要(yao)措(cuo)施(shi),是(shi)(shi)市場(chang)信(xin)用體系的主(zhu)要(yao)支(zhi)撐，是(shi)(shi)保(bao)障工(gong)(gong)(gong)(gong)程(cheng)(cheng)質量安(an)全(quan)的有效手(shou)段。自2004 年開展工(gong)(gong)(gong)(gong)程(cheng)(cheng)擔(dan)(dan)保(bao)試點(dian)以來，初步(bu)建(jian)立了(le)適(shi)合我國(guo)(guo)國(guo)(guo)情(qing)的工(gong)(gong)(gong)(gong)程(cheng)(cheng)擔(dan)(dan)保(bao)制(zhi)(zhi)度，提(ti)高了(le)建(jian)筑(zhu)市場(chang)主(zhu)體的履約意識，豐富了(le)建(jian)筑(zhu)市場(chang)監管(guan)(guan)手(shou)段。但是(shi)(shi)，當前建(jian)筑(zhu)市場(chang)仍然存在著工(gong)(gong)(gong)(gong)程(cheng)(cheng)防風(feng)險(xian)能力不(bu)強，履約糾紛頻發(fa)，工(gong)(gong)(gong)(gong)程(cheng)(cheng)欠(qian)款、欠(qian)薪屢禁不(bu)止等問題，亟(ji)需通(tong)過完(wan)善工(gong)(gong)(gong)(gong)程(cheng)(cheng)擔(dan)(dan)保(bao)應用機制(zhi)(zhi)加(jia)以解決。為貫徹(che)落實(shi)《國(guo)(guo)務院辦(ban)(ban)公廳關于促進建(jian)筑(zhu)業持續健(jian)康發(fa)展的意見》（國(guo)(guo)辦(ban)(ban)發(fa)〔2017〕19 號）、《國(guo)(guo)務院辦(ban)(ban)公廳關于開展工(gong)(gong)(gong)(gong)程(cheng)(cheng)建(jian)設項(xiang)目審批制(zhi)(zhi)度改革試點(dian)的通(tong)知》（國(guo)(guo)辦(ban)(ban)發(fa)〔2018〕33 號），進一步(bu)優(you)化(hua)營(ying)商環境，強化(hua)事中事后監管(guan)(guan)，保(bao)障工(gong)(gong)(gong)(gong)程(cheng)(cheng)建(jian)設各方主(zhu)體的合法權益，現就加(jia)快推進實(shi)施(shi)工(gong)(gong)(gong)(gong)程(cheng)(cheng)擔(dan)(dan)保(bao)制(zhi)(zhi)度提(ti)出(chu)如(ru)下意見。

一、總體要(yao)求

全(quan)(quan)面(mian)深入貫徹(che)黨的十九大(da)和十九屆(jie)二中(zhong)、三中(zhong)全(quan)(quan)會精(jing)神，以習近平新(xin)(xin)時(shi)代(dai)中(zhong)國(guo)(guo)特色社(she)會主(zhu)義思(si)想為指導(dao)，落實黨中(zhong)央(yang)、國(guo)(guo)務院關于防范應對各類風險、優化(hua)營商環境、減輕企業負擔的工作(zuo)部署(shu)，通過加快推(tui)進(jin)(jin)實施工程擔保制度，推(tui)進(jin)(jin)建筑(zhu)產業供給側結構性改革(ge)，優化(hua)建筑(zhu)產業發展環境，激(ji)發市(shi)場主(zhu)體活力(li)，創(chuang)新(xin)(xin)建筑(zhu)市(shi)場監管(guan)方式，適(shi)應國(guo)(guo)際化(hua)發展需求(qiu)。

二、工(gong)作(zuo)目標(biao)

在依(yi)法必須招標(biao)的工(gong)程項目和民間投資(zi)(zi)的住(zhu)宅工(gong)程中(zhong)推(tui)行(xing)(xing)工(gong)程履約擔保；在房地產開發項目中(zhong)推(tui)行(xing)(xing)工(gong)程款支(zhi)付(fu)擔保；全(quan)面推(tui)行(xing)(xing)工(gong)程質(zhi)量保證和農民工(gong)工(gong)資(zi)(zi)支(zhi)付(fu)擔保。到 2020年，各類(lei)保證金的保函(han)替代率提升 30%；采用最低價中(zhong)標(biao)的工(gong)程實行(xing)(xing)高額履約擔保；農民工(gong)工(gong)資(zi)(zi)支(zhi)付(fu)保函(han)全(quan)部采用見索即付(fu)保函(han)。

銀行(xing)保(bao)(bao)函、工(gong)程擔保(bao)(bao)公司保(bao)(bao)函以及工(gong)程保(bao)(bao)證保(bao)(bao)險保(bao)(bao)單(dan)統稱保(bao)(bao)函。

三、分類實施(shi)工程擔保制度

（一）大力推行(xing)(xing)投標擔保。投標保函的金額(e)不得(de)超過招標項目估算(suan)價的 2%，最高不超過 80 萬元。鼓勵將(jiang)投標人參(can)與圍(wei)標串標及提供(gong)虛(xu)假材料等(deng)行(xing)(xing)為(wei)納入(ru)投標保函的索賠(pei)條件，規范(fan)招投標秩(zhi)序。招標人到期未退還投標保證(zheng)金的，作(zuo)為(wei)不良行(xing)(xing)為(wei)記入(ru)信用(yong)記錄。

（二）著力(li)推行履(lv)約擔保。依法必須招標的(de)工(gong)(gong)程(cheng)項目應(ying)當在招標文(wen)件中列明承包(bao)單位(wei)(wei)提供履(lv)約保函(han)(han)(han)。民間投資的(de)住宅工(gong)(gong)程(cheng)應(ying)當實行履(lv)約保函(han)(han)(han)。采(cai)用最低價(jia)中標的(de)工(gong)(gong)程(cheng)應(ying)當推行高保額履(lv)約保函(han)(han)(han)，保函(han)(han)(han)金(jin)額由建設(she)單位(wei)(wei)在招標文(wen)件中確(que)定(ding)。工(gong)(gong)程(cheng)參建各方(fang)主體及(ji)(ji)保證(zheng)人應(ying)當加強工(gong)(gong)程(cheng)風險防控能力(li)建設(she)。保證(zheng)人應(ying)當不斷提高專(zhuan)業(ye)化承保能力(li)，增強風險識(shi)別能力(li)，認(ren)真開展保中、保后(hou)監管，及(ji)(ji)時做好(hao)預警預案，協助建設(she)單位(wei)(wei)和承包(bao)商做好(hao)對工(gong)(gong)程(cheng)承包(bao)合(he)(he)同(tong)的(de)履(lv)約管理和合(he)(he)同(tong)爭議調解(jie)等工(gong)(gong)作，并在違約發生后(hou)及(ji)(ji)時代為履(lv)行或承擔損失(shi)賠付責任。

（三）加(jia)快推行(xing)工(gong)(gong)程(cheng)款(kuan)(kuan)支付(fu)(fu)擔(dan)(dan)保(bao)。在房(fang)地產開發項目(mu)中推行(xing)工(gong)(gong)程(cheng)款(kuan)(kuan)支付(fu)(fu)擔(dan)(dan)保(bao)。項目(mu)所在地縣級以上住房(fang)城鄉建(jian)設主(zhu)管(guan)部門(men)應當組織開展對建(jian)設單(dan)位的誠信評(ping)價，將誠信評(ping)價結果作為實行(xing)工(gong)(gong)程(cheng)款(kuan)(kuan)支付(fu)(fu)擔(dan)(dan)保(bao)的重(zhong)要(yao)依據(ju)，采(cai)取(qu)差別(bie)化的政策，以激勵和強化對建(jian)設單(dan)位的行(xing)為規范(fan)。對于未(wei)提供(gong)工(gong)(gong)程(cheng)款(kuan)(kuan)支付(fu)(fu)擔(dan)(dan)保(bao)和預付(fu)(fu)款(kuan)(kuan)的政府投資工(gong)(gong)程(cheng)，縣級以上住房(fang)城鄉建(jian)設主(zhu)管(guan)部門(men)應加(jia)大監管(guan)力度，對發現工(gong)(gong)程(cheng)款(kuan)(kuan)拖欠的工(gong)(gong)程(cheng)依法予以停工(gong)(gong)。

（四）強(qiang)化工程質量(liang)保(bao)(bao)證擔保(bao)(bao)應(ying)用。在住宅(zhai)工程中推行(xing)工程質量(liang)保(bao)(bao)函(han)，保(bao)(bao)函(han)金額(e)不(bu)得超過工程價款結算總額(e)的(de) 3%，工程質量(liang)保(bao)(bao)函(han)有效期(qi)應(ying)與施(shi)工合(he)同(tong)中確定(ding)的(de)工程缺陷責任(ren)期(qi)相一致。建設單位到期(qi)未退還保(bao)(bao)證金的(de)，應(ying)作為(wei)不(bu)良(liang)行(xing)為(wei)記(ji)(ji)入信用記(ji)(ji)錄。

（五）全面(mian)推行(xing)農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資支付保(bao)函。在工(gong)(gong)(gong)程(cheng)建(jian)設(she)中全面(mian)推行(xing)農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資支付保(bao)函，并(bing)實(shi)行(xing)差別化管理，連續兩(liang)年未發生拖欠(qian)農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資情形的(de)施(shi)工(gong)(gong)(gong)企(qi)(qi)業(ye)(ye)不用提供農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資支付保(bao)函。對有拖欠(qian)農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資記錄的(de)施(shi)工(gong)(gong)(gong)企(qi)(qi)業(ye)(ye)，應納入建(jian)筑市場(chang)主體“黑名單”，實(shi)施(shi)失(shi)信聯合(he)懲戒。農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資支付保(bao)函的(de)保(bao)證人(ren)應不斷提升(sheng)專業(ye)(ye)能力，提前預控農(nong)民(min)工(gong)(gong)(gong)工(gong)(gong)(gong)資支付風險(xian)，并(bing)結(jie)合(he)建(jian)筑工(gong)(gong)(gong)人(ren)實(shi)名制(zhi)平臺建(jian)設(she)，加(jia)(jia)強對農(nong)民(min)工(gong)(gong)(gong)合(he)法權益保(bao)障力度，加(jia)(jia)快(kuai)建(jian)筑工(gong)(gong)(gong)人(ren)產業(ye)(ye)化進(jin)程(cheng)。

（六）推行工(gong)程保(bao)(bao)函替代保(bao)(bao)證金(jin)(jin)。嚴格(ge)落(luo)實國務院清理(li)規范(fan)工(gong)程建設(she)領域保(bao)(bao)證金(jin)(jin)的(de)工(gong)作要(yao)求，對于投標保(bao)(bao)證金(jin)(jin)、履約保(bao)(bao)證金(jin)(jin)、工(gong)程質量保(bao)(bao)證金(jin)(jin)、農民工(gong)工(gong)資保(bao)(bao)證金(jin)(jin)，建筑(zhu)企業可以保(bao)(bao)函的(de)方(fang)式繳納，對于銀行保(bao)(bao)函，建設(she)單(dan)位和(he)有關(guan)部(bu)門(men)不得拒絕(jue)。工(gong)程保(bao)(bao)函的(de)保(bao)(bao)費應計入工(gong)程造價。

四、促(cu)進工程擔保(bao)市場健康(kang)發展

（七）培育保(bao)(bao)(bao)證人(ren)市(shi)場。從(cong)事工(gong)程(cheng)擔保(bao)(bao)(bao)的保(bao)(bao)(bao)證人(ren)應(ying)為(wei)有(you)資格的銀(yin)行(xing)(xing)業(ye)(ye)金融機(ji)構(gou)、專業(ye)(ye)擔保(bao)(bao)(bao)機(ji)構(gou)、保(bao)(bao)(bao)險(xian)機(ji)構(gou)。其(qi)中，銀(yin)行(xing)(xing)業(ye)(ye)金融機(ji)構(gou)是指分(fen)行(xing)(xing)、支行(xing)(xing)以上銀(yin)行(xing)(xing)；專業(ye)(ye)擔保(bao)(bao)(bao)機(ji)構(gou)是指取得資信(xin)等級的專業(ye)(ye)工(gong)程(cheng)擔保(bao)(bao)(bao)公司；保(bao)(bao)(bao)險(xian)機(ji)構(gou)是指經銀(yin)保(bao)(bao)(bao)監會(hui)批(pi)準(zhun)可以從(cong)事保(bao)(bao)(bao)證保(bao)(bao)(bao)險(xian)業(ye)(ye)務的保(bao)(bao)(bao)險(xian)公司。

（八）創新(xin)監督(du)管(guan)理方式(shi)。引導各方市(shi)場(chang)主體樹立信用(yong)(yong)(yong)意識，加強內(nei)部信用(yong)(yong)(yong)管(guan)理，不斷提高履約能(neng)力，積累企業信用(yong)(yong)(yong)。修訂保函(han)(han)示(shi)范文(wen)本，修改完善工(gong)程招標文(wen)件和合同示(shi)范文(wen)本，推進(jin)(jin)工(gong)程擔(dan)(dan)保應用(yong)(yong)(yong)；積極(ji)發展電(dian)子保函(han)(han)，鼓(gu)勵以工(gong)程再擔(dan)(dan)保體系增(zeng)強對擔(dan)(dan)保機(ji)構(gou)的信用(yong)(yong)(yong)管(guan)理，推進(jin)(jin)“互聯網+”工(gong)程擔(dan)(dan)保市(shi)場(chang)監管(guan)。項目所在地住房城鄉(xiang)建設主管(guan)部門要(yao)加強對保證人履行擔(dan)(dan)保責(ze)任的“雙隨機(ji)、一公(gong)開”執法檢查(cha)。

（九）完善風險(xian)(xian)防控機制。推(tui)進工(gong)程擔(dan)保(bao)保(bao)證(zheng)人不斷完善內控管(guan)(guan)理(li)制度，積極開展風險(xian)(xian)管(guan)(guan)理(li)服務，鼓(gu)勵保(bao)證(zheng)人與工(gong)程監(jian)理(li)企業(ye)等工(gong)程項目管(guan)(guan)理(li)企業(ye)開展合作，有(you)效防范(fan)和(he)控制風險(xian)(xian)。保(bao)證(zheng)人應不斷規(gui)范(fan)工(gong)程擔(dan)保(bao)行為，加強風險(xian)(xian)防控機制建設(she)，發展保(bao)后風險(xian)(xian)跟蹤和(he)風險(xian)(xian)預警服務能力，增強處理(li)合同糾(jiu)紛、認定賠付責(ze)任等能力。全面提升工(gong)程擔(dan)保(bao)機構風險(xian)(xian)評(ping)估、風險(xian)(xian)防控能力，切實發揮工(gong)程擔(dan)保(bao)作用。

（十）落(luo)實建(jian)設(she)資金(jin)到(dao)位(wei)(wei)證(zheng)明(ming)。建(jian)設(she)單位(wei)(wei)在辦理施工許可時，可以出具建(jian)設(she)資金(jin)到(dao)位(wei)(wei)承諾(nuo)書，承諾(nuo)書應(ying)列(lie)明(ming)建(jian)設(she)單位(wei)(wei)具有銀(yin)行出具的建(jian)設(she)資金(jin)到(dao)位(wei)(wei)證(zheng)明(ming)或者提供工程款支付保函。各級住房城(cheng)鄉建(jian)設(she)主管部門應(ying)加大對建(jian)設(she)資金(jin)落(luo)實情況的監督檢查(cha)，遏制工程款拖欠。對于未(wei)履行承諾(nuo)的建(jian)設(she)單位(wei)(wei)，將其不良行為記入(ru)建(jian)筑市(shi)場信(xin)用檔(dang)案。

（十(shi)一）加強合(he)同(tong)履約監(jian)管(guan)。各(ge)級住房城鄉建設主管(guan)部門應加強各(ge)類合(he)同(tong)的履約監(jian)管(guan)，嚴禁建設單位和承包單位訂(ding)立陰(yin)陽合(he)同(tong)、虛假合(he)同(tong)。要依法(fa)嚴格查處違法(fa)違規行為(wei)，維護建筑市場(chang)秩序。

（十二）加大信(xin)(xin)(xin)息(xi)公(gong)開力(li)度(du)。工程擔保(bao)公(gong)司應當向全國建(jian)(jian)筑市場(chang)監管公(gong)共(gong)服(fu)(fu)務平(ping)臺報送項目業績基(ji)本信(xin)(xin)(xin)息(xi)，全國建(jian)(jian)筑市場(chang)公(gong)共(gong)服(fu)(fu)務平(ping)臺對(dui)其年度(du)業績信(xin)(xin)(xin)息(xi)進行公(gong)示，建(jian)(jian)立動(dong)態管理制度(du)，及(ji)時清出長期(qi)未從業的工程擔保(bao)公(gong)司。加大建(jian)(jian)筑市場(chang)信(xin)(xin)(xin)息(xi)公(gong)開力(li)度(du)，全面公(gong)開企業資質、人員(yuan)資格、工程業績、誠(cheng)信(xin)(xin)(xin)信(xin)(xin)(xin)息(xi)以(yi)及(ji)工程擔保(bao)相關信(xin)(xin)(xin)息(xi)，方便投保(bao)人、受益人、保(bao)證人及(ji)相關機(ji)構查(cha)詢(xun)。

（十三(san)）推進誠信(xin)體系建(jian)設。制(zhi)定(ding)統一的(de)資信(xin)評價標(biao)準，對工程擔(dan)保(bao)公司、銀行(xing)、保(bao)險機(ji)構開展信(xin)用(yong)(yong)評價工作。積極探索建(jian)筑市(shi)場(chang)信(xin)用(yong)(yong)評價結果直接應用(yong)(yong)于工程擔(dan)保(bao)的(de)辦法，為信(xin)用(yong)(yong)狀況良好的(de)企業提供(gong)便利，降低擔(dan)保(bao)費用(yong)(yong)、簡化(hua)擔(dan)保(bao)程序；對惡(e)意索賠等嚴重失信(xin)企業納入建(jian)筑市(shi)場(chang)主體“黑名單”管理，實施聯合懲戒，構建(jian)“一處(chu)失信(xin)、處(chu)處(chu)受制(zhi)”的(de)市(shi)場(chang)環境。

六、加強統籌推動

（十四）加強(qiang)組織(zhi)領導。各地(di)有關部門(men)要高度(du)重視工(gong)(gong)(gong)程擔保(bao)工(gong)(gong)(gong)作，明晰工(gong)(gong)(gong)作目標，完(wan)善工(gong)(gong)(gong)作機制(zhi)，落實工(gong)(gong)(gong)作責任。健(jian)全工(gong)(gong)(gong)程擔保(bao)管理(li)機制(zhi)，完(wan)善相關配套政策(ce)；項目所(suo)在地(di)有關部門(men)要加大(da)對(dui)工(gong)(gong)(gong)程擔保(bao)機構(gou)的監管，不斷提升(sheng)保(bao)證人專業(ye)能力，防范化(hua)解工(gong)(gong)(gong)程風險。

（十五）建(jian)(jian)立考評(ping)(ping)機制。住房城鄉(xiang)建(jian)(jian)設部建(jian)(jian)立工(gong)(gong)程擔(dan)(dan)保工(gong)(gong)作(zuo)考核(he)評(ping)(ping)價機制，重(zhong)點考核(he)評(ping)(ping)價各(ge)地推進(jin)工(gong)(gong)程擔(dan)(dan)保應(ying)用(yong)、工(gong)(gong)程擔(dan)(dan)保制度(du)體系建(jian)(jian)設等情況。各(ge)地住房城鄉(xiang)建(jian)(jian)設主(zhu)管部門要(yao)加大對工(gong)(gong)程擔(dan)(dan)保工(gong)(gong)作(zuo)的監督檢查力度(du)，確保工(gong)(gong)程擔(dan)(dan)保工(gong)(gong)作(zuo)目標落(luo)實。

（十六）做好宣傳引(yin)導(dao)。各地有關部門要通過多種形式(shi)積極做好工(gong)(gong)(gong)程擔保(bao)的(de)(de)宣傳工(gong)(gong)(gong)作(zuo)，加強輿(yu)論引(yin)導(dao)，增(zeng)進建筑市場主(zhu)體對工(gong)(gong)(gong)程擔保(bao)的(de)(de)了解和應用，切實發(fa)揮工(gong)(gong)(gong)程擔保(bao)防范和化解工(gong)(gong)(gong)程風(feng)險的(de)(de)作(zuo)用。