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国务院


国务院办公厅转发国务院口岸领导小组关于加强疏港工作的几项规定的通知(附英文)

1984年12月19日，国务院

通知
国务院口岸领导小组制订的《关于加强疏港工作的几项规定》已经国务院批准，现转发给你们，请贯彻执行。

国务院口岸领导小组关于加强疏港工作的几项规定
随着经济体制改革全面深入进行和对外开放政策的进一步贯彻，我国的内、外贸易将更加发展，而港口的综合通过能力近期内还不能得到根本的改善，预计今后相当长的时间，运量与运输能力的矛盾仍很突出。为了保持港口畅通，加速车、船、库场的周转和货物流通，提高社会经济效益，必须加强疏运工作。为此，特作如下规定：
一、坚持计划运输。外贸进出口货物运输计划实行“两级平衡、集中管理”的办法。对于综合平衡后下达的运输计划，各部门都要严格执行。
1、各外贸专业公司、工贸公司要均衡交货。各有关船舶运输公司要均衡派船和到船，避免船舶集中到港。
2、港口对到港外贸船舶的装卸，应严格执行先计划内、后计划外，原则上按照到港先后的顺序安排装卸作业。
3、铁路、公路、水运各运输部门要积极集疏。铁路部门对疏港物资要按交通部、铁道部、经贸部月度平衡计划，优先配车，优先装运；除发生自然灾害和重大事故造成运输中断以及铁路严重堵塞外，在压港期间，原则上不得停装和限装经由限制口的压港物资。
4、物资部门（或代理单位）要按运输部门规定的时间提供流向和落实接储措施。要按货车在站停留时间组织接车、卸车，不得以车代库。有关部门要及时将交货、到船情况通报物资部门。
5、凡未按交通部、铁道部、经贸部月度平衡会议要求报送计划的无计划到船，由当地人民政府对责任单位处以每吨一元的罚款，并按有关规定申报接卸。对已按要求报送计划，因港口、铁路能力不足，未能列入计划的到船，不予罚款。但对集中到港的大宗物资，如超过年度计划月均水平15％的，对责任单位处以每吨五角的罚款。罚款收入由当地人民政府拿出50％－70％用于奖励疏港有成绩的口岸有关单位（包括口岸检查、检验部门）和个人，由省（区、市）口岸办公室具体组织实施。
6、对不属合理流向的到港铁路中转物资，在限额以内的（杂货不超过五百吨，大宗物资不超过一千吨），铁路部门应视为合理流向予以承运。超过限额的，应挂港靠卸。

7、国务院口岸领导小组办公室和省（区、市）口岸办公室会同有关主管部门，对组织货单、订货、交货、派船、港口装卸和后方疏运等环节进行督促检查，并协调、仲裁计划运输中的重大矛盾。
二、为了保持港口枢纽的正常生产秩序，调动各方的积极性，加快车、船、货的周转，根据当前经济体制改革的精神，口岸各有关单位应签订双边或多边的经济协议，明确责任，奖罚分明。协议的内容可以包括船舶速遣滞期、铁路装车数、货车在港停留时间、超计划卸船、装车的奖励等经济制约条款，由当地口岸办公室组织落实。
三、近距离物资，除大宗散货和有铁路专用线的外，原则上用汽车疏运。公路运输企业要千方百计改善经营、降低成本和运价，采取优质服务、薄利多运的原则。各港口的汽车疏运距离由当地省（区、市）人民政府根据本地不同情况作出规定。在规定距离内，除特殊情况下，铁路不予装车。
四、有水路疏运条件的港口，要充分利用水上过驳和船舶疏运。由各省、自治区、直辖市自行接运的物资，在本省运力不能及时保证疏运时，由当地口岸办公室会同有关部门调剂运力，抵达港要按计划内到船安排接卸。
五、在港口压船或其他特殊情况下，经交通部、铁道部、经贸部及有关物资单位的主管部门研究确认的或国务院口岸领导小组办公室决定的改变到港外贸船舶，抵达港的港口和运输部门要按计划内到船对待，货主要积极配合，及时调整货物流向和落实接储措施。所增加的船舶费用由船方负担，增加的国内运费由货主负担。如已订有协议的，按协议办理。
六、凡进口适于装集装箱的一级危险品货物，除零星数量外，原则上采用集装箱运输。烈性危险货物原则上直接换装，货不落地，因特殊情况需进港口库场的，货主必须在限期内提离。
七、凡暂未按本规定第二条签订经济协议的，有关部门应按下列办法处理：
1、凡已卸到港口库场的进口物资，由于货主或代理人未能提供合理流向和落实接储措施等，导致港存期超过十天（四天合理保存期除外，下同）的，从超过日开始，对货主或代理人按规定费率加收堆存保管费50％，超过二十天的，加收100％。由于港口的责任，造成货主未能按期提到货物，港口免收误期的货物保管费，并向货主支付提货空放的车、船费用。凡属月度平衡计划内的物资由于铁路部门的责任，造成货主不能如期提货，所误期的货物保管费由铁路部门负担。对由于人力不可抗拒的原因或其他特殊原因造成货物不能及时提离，免收超期累进堆存保管费用。对责任问题发生分歧时，由当地口岸办公室协调仲裁。
2、在压港期间，货物卸进港口库场超过十四天，经催提仍未提离时，当地口岸办公室可确定进行转栈或转离港区，所发生的一切费用，由货主负担。转栈点的选择应有利于疏运，转栈货物需装火车外运时，铁路部门要按疏港物资对待。
3、进口货物卸货后，堆存期超过两个月，经催提仍未提离的，作为无法交付货物。已报关的由当地人民政府责成港口有关部门没收处理，未报关的由海关没收处理。处理货款按有关规定上交国库。货物处理后，如经查实确因工作失误，应由责任方赔偿货主经济损失。
4、遇有港口严重堵塞的情况，为了紧急疏通，由当地口岸办公室提出建议，经国务院口岸领导小组批准，也可对不超过两个月的在港物资作必要的处理。
八、港口所在地省、自治区、直辖市人民政府应根据本规定，结合本地具体情况，制定疏港工作实施细则，报国务院口岸领导小组备案，并由当地口岸办公室组织执行。
九、本规定自一九八五年二月一日起试行。过去有关规定与本规定有抵触的，以本规定为准。

CIRCULAR OF THE GENERAL OFFICE OF THE STATE COUNCIL CONCERNING THEAPPROVAL AND TRANSMISSION OF SEVERAL PROVISIONS BY THE LEADING GROUP FORPORT AFFAIRS ON STRENGTHENING THE WORK OF UNCLOGGING HARBOURS

Important Notice: (注意事项)
英文本源自中华人民共和国务院法制局编译, 中国法制出版社出版的《中华人民
共和国涉外法规汇编》(1991年7月版).
当发生歧意时, 应以法律法规颁布单位发布的中文原文为准.
This English document is coming from the "LAWS AND REGULATIONS OF THE
PEOPLE'S REPUBLIC OF CHINA GOVERNING FOREIGN-RELATED MATTERS" (1991.7)
which is compiled by the Brueau of Legislative Affairs of the State
Council of the People's Republic of China, and is published by the China
Legal System Publishing House.
In case of discrepancy, the original version in Chinese shall prevail.

Whole Document (法规全文)
CIRCULAR OF THE GENERAL OFFICE OF THE STATE COUNCIL CONCERNING THE
APPROVAL AND TRANSMISSION OF SEVERAL PROVISIONS BY THE LEADING GROUP FOR
PORT AFFAIRS ON STRENGTHENING THE WORK OF UNCLOGGING HARBOURS
(December 19, 1984)
Several Provisions on Strengthening the Work of Unclogging Harbours
formulated by the Leading Group for Port Affairs under the State Council
has been approved by the State Council. It is hereby transmitted to you
for implementation.
SEVERAL PROVISIONS ON STRENGTHENING THE WORK OF UNCLOGGING HARBOURS
With the all-round deepening of the reform of the economic structure and
the further implementation of the opening policy, there will be further
growth in our domestic and foreign trade. However, it is not possible to
improve the comprehensive capacity of passage of our harbours
fundamentally in the near future. Sharp contradiction between freight
volume and transport capacity will remain for a fairly long time in the
foreseeable future. In order to keep the harbours unblocked, raise the
rate of utilization of vehicle, vessels and warehouses, speed up the flow
of goods, and improve social and economic results, it is necessary to
strengthen the work of unclogging harbours. For this purpose, provisions
are formulated as follows:
1. The policy of planned transport must be persisted in. The method of
"two-level balance and centralized administration" shall be adopted in
formulating transport plans for import and export of foreign trade goods.
The transport plans, which are issued after going through the procedure of
comprehensive balance, must be strictly implemented by all the
departments.
(1) All the foreign trade companies and industrial trade corporations
shall deliver goods in a balanced way. All the shipping companies shall
dispatch their ships in a balanced way so as to prevent the ships from
crowding into the harbours.
(2) In arranging loading and unloading foreign trade vessels, the harbours
shall strictly observe the principle of planned ones first and those
outside the plans next, and basically according to the order of their
arrival to the harbours.
(3) The railway, highway and water transport departments shall take an
active part in the work of unclogging harbours. Railway departments shall,
in dispatching wagons, loading and transporting goods, give priority to
the materials from the clogged harbours, according to the monthly balance
plan made jointly by the Ministry of Communications, the Ministry of
Railways and the Ministry of Foreign Economic Relations and Trade. Except
when transport is suspended as a result of natural disasters and major
accidents and when railways are seriously blocked, the loading and
transport of the materials from the clogged harbours may not, in
principle, be stopped or restricted.
(4) Departments in charge of materials and goods (or their agent units)
shall provide direction of transportation for the arrived materials and
take practical measures for receiving and storing the materials according
to the time set by transport departments. They shall unload the materials
and goods from the wagons during their stay at the stations and must not
use the wagons as storehouses. The relevant departments shall notify
departments in charge of materials and goods, timely, of the delivery and
arrival of vessels.
(5) If vessels arrive at harbours without having obtained the approval of
the monthly balance meeting held jointly by the Ministry of
Communications, the Ministry of Railways and the Ministry of Foreign
Economic Relations and Trade, local people's governments shall impose a
fine of one yuan for every ton of goods on the responsible units and the
unloading of such vessels shall be arranged according to relevant
stipulations. Fines shall not be imposed on the vessels which have sent
the plans as demanded but have not been included in the plans due to
inadequacy of capacity of the harbours and railways. However, for large
amounts of materials which have crowded into harbours, if the amount is
15% more than the monthly average of the yearly plan, a fine of 0.5 yuan
for every ton of goods shall be imposed on the responsible units. Local
people's governments shall use 50% to 70% of the income derived from fines
in awarding the relevant units (including departments for harbour
inspection and examination) and individuals at the harbour that have made
achievements in unclogging the harbours. This shall be organized and
implemented by the offices in charge of port affairs in the provinces
(regions and municipalities).
(6) For those materials which have arrived at harbours to be transferred
through railways to certain places and which do not belong to reasonable
flow, if the amount is within the limit (less than 500 ton for sundry
goods, less than 1,000 ton for a large bulk of materials), railway
departments shall undertake their transport as reasonable flow. If the
amount exceeds the limit, the materials shall be unloaded at the harbours.
(7) Leading Group for Port Affairs of the State Council and the offices in
charge of port affairs in the provinces (regions and municipalities)
shall, together with the relevant competent departments, conduct
supervision and examination over such links of transportation as
organizing sources of goods, ordering goods, delivery of goods, dispatch
of vessels, loading and unloading at harbours and dispersion in transport,
and shall handle and arbitrate major problems which arise in planned
transport.
2. In order to maintain normal production order at harbours, bring into
full play the initiative of all the parties and raise the rate of
turn-rounds of vehicle, vessels and goods, the relevant units at the ports
shall, in the spirit of the current reform of the economic structure, sign
bilateral or multilateral economic agreements, define each party's
responsibilities and clearly observe the policy of awards and penalties.
The content of the agreements may include provisions concerning period of
detention for vessels, number of railway wagons to be loaded, the time
freight trains may be allowed to stay at harbours, awards to those who go
beyond the plans in unloading goods from vessels and loading wagons and
trucks, etc. - which, as economic restrictive clauses for the parties,
shall be implemented under the aegis of the local offices for port
affairs.
3. Except bulk cargo and those which can be transported through special
railway lines, the materials destined for places not far from harbours
shall in principle be transported by trucks. Highway transportation
enterprises shall try every means to improve business management, lower
the cost and freight rates, and apply the business policies of good
service, and small profits but quick turnover. The distance limit within
which the materials and goods from harbours must be transported by trucks
shall be set by local people's government of the province (region or
municipality) in accordance with the local conditions.
Except for special circumstances, the materials and goods for places
within the prescribed distance limit shall not be transported through
railways.
4. The harbours from which materials and goods can be transported by water
shall make full use of vessels. In case the provinces, autonomous regions
and municipalities directly under the Central Government are unable to
transport timely their materials and goods from clogged harbours, local
offices for port affairs and the relevant departments shall organize
transport for them, and the harbours of arrival shall treat such vessels
as those within the plan and arrange unloading for them.
5. In case a harbour is clogged or in other special circumstances, the
Ministry of Communications, the Ministry of Railways and the Ministry of
Foreign Economic Relations and Trade as well as the competent departments
of the relevant units in charge of materials and goods, or the Leading
Group for Port Affairs of the State Council, may decide to change the
harbour of arrival for foreign trade vessels. The ports of arrival for
those vessels and departments for transportation shall treat them equally
as those within their plans and, with the close cooperation of the owners
of the cargo, adjust the direction of transportation for the cargo and
take measures for receiving and storing the cargo. The extra shipping
expenses shall be borne by the shipping companies and the extra domestic
freight, by the owners. If agreements have been signed, the agreements
shall apply.
6. Except for small quantities, imported grade-1 dangerous goods shall be,
in principle, transported in containers. Highly dangerous goods shall be,
in principle, transloaded directly without touching the ground. If it is
necessary to move them onto storage ground in extraordinary circumstances,
the owners must take delivery of the goods and leave the ground within a
time limit.
7. If economic agreements have not yet been signed in accordance with
Article 2 of these Provisions, the relevant departments shall handle the
cases according to the following measures:
(1) In case the imported materials which have been unloaded onto harbour
storage grounds remain at the harbour for more than 10 days (the 4 days of
reasonable storage period is not included, the same below) because the
owners or their agents fail to provide reasonable directions of
transportation and adopt practicable measures for receiving and storing
the goods, an additional storage fee, which is 50% of the set rate, shall
be collected from the owners or their agents starting from the first day
that is overdue; an additional storage fee, which is 100% of the set rate,
shall be collected if the materials are overdue for more than 20 days. If
the owners cannot take delivery of their goods in time because of the
harbour's responsibility, the harbour authority shall exempt them from
additional storage fees and pay the owners the expenses for hiring the
vehicle and vessels which have come in vain for the goods. If the owners
cannot take delivery of the goods which are within the monthly balance
plans because of the railway department's responsibility, the railway
department shall bear the additional storage fees. If goods cannot be
taken delivery of in time due to force majeure or other special reasons,
additional storage fees shall be exempted. Local offices for port affairs
shall mediate and arbitrate any disputes over issues of responsibilities.
(2) In case any unloaded and stored goods remain on the storage grounds of
a clogged harbour for more than 14 days, and the owners has already been
urged to take delivery of the goods, the local office for port affairs may
decide to move the goods to a warehouse or move them outside the harbour
area. The owner shall bear all the expenses arising therefrom. The choice
of the warehouses shall facilitate transportation of goods from the
clogged harbour. When the owners apply for train wagons for the
transportation of the goods in the warehouses, railway departments shall
treat their goods as materials from clogged harbours.
(3) In case imported goods remain at a harbour for more than two months
and the owner has not taken delivery of the goods although he has been
urged to do so, they shall be treated as goods which cannot be delivered.
Those goods which have gone through Customs declaration shall be
confiscated by the relevant department at the harbour according to the
instructions of the local people's government. Those goods which have not
gone through Customs declaration shall be confiscated by the Customs. The
income from the sale of the confiscated goods shall be turned over to the
State treasury according to the relevant stipulations. If it is proved
that the goods have been wrongly confiscated and sold, the party
responsible for the error shall pay for the economic loss of the owner.
(4) When a harbour is seriously blocked, in order to unclog it as soon as
possible, upon the suggestion of the local office for port affairs and the
approval of the Leading Group for Port Affairs of the State Council, some
materials which have remained at the harbour for less than two months may
also be subjected to necessary treatment.
8. The provinces, autonomous regions and municipalities directly under the
Central Government, where there are harbours, shall, in accordance with
these Provisions, formulate rules for implementing the work of unclogging
harbours in the light of their respective conditions and report to the
Leading Group for Port Affairs of the State Council for the record. Local
offices for port affairs shall be responsible for the implementation of
the rules.
9. These Provisions shall be trial implemented as of February 1, 1985. If
any existing provisions in this regard conflict with these Provisions,
these Provisions shall prevail.


建设工程合同中解决争议方法的条款的效力独立于合同效力

武陟县疾病预防控制中心与被王善林建设工程施工合同纠纷案分析


一、本案要旨
本案要旨为，建设工程合同经法院确认为无效的，合同自始无效；合同中的条款也自始不发生法律效力，对当事人不具有法律约束力，但合同无效，并不影响合同中独立存在的有关解决争议方法的条款的效力。
王善林借用焦作市第二建筑工程公司资质与武陟县卫生防疫站签订《建设工程施工合同》。2009年9月份，建筑方、施工方协商，订立了工程进度协议书，约定施工方必须于2004年10月30日前交工，如不能按时交工，每延误一天按总工程款0.05%扣除滞纳金（按延误天数累计计算）。该工程于2005年5月28日经竣工验收合格。武陟县人民法院于2007年8月20日作出判决，认定王善林借用焦作市第二建筑工程公司的名义与武陟县卫生防疫站订立的合同，因违反了法律的强制性规定，合同无效。后疾控中心以王善林延误工期为由，要求其承担滞纳金，王善林不愿履行，形成纠纷，疾控中心起诉。
本案的争议焦点主要为，王善林应否赔偿疾控中心延误工期违约金256464元。
一审法院审理认为，疾控中心起诉要求王善林因延误工期414天，按照总工程款0.05%扣除滞纳金，共计赔偿疾控中心256464元的请求，属于依据合同要求王善林承担的违约责任。因涉案建设工程施工合同已被（2007）武民初字第359号民事判决书、（2007）焦民终字第1075号民事判决书认定无效，根据合同法的规定“无效的合同自始没有法律约束力”，因合同无效，合同条款中的关于滞纳金的条款亦无效，疾控中心的诉请无法律依据，不予支持。
二审法院审理认为，2004年9月29日和2004年11月27日签订的两份工程进度协议书均是对涉案《建筑工程施工合同》中有关工期约定的变更，是涉案《建筑工程施工合同》的组成部分。涉案《建设工程施工合同》已被（2007）武民初字第359号民事判决书、（2007）焦民终字第1075号民事判决书认定无效，而工程进度协议书中的关于延误工期应予赔偿的条款并不是独立存在的有关解决争议方法的条款，故关于延误工期应予赔偿的条款自始没有约束力。疾控中心主张进度协议书是独立存在的有关解决工程进度的协议书，王善林应承担延误工期赔偿责任，无事实和法律依据，故疾控中心的上诉请求不能成立，法院不予支持。

二、案件来源
武陟县人民法院（2010）武民初字第90号；河南省焦作市中级人民法院(2011)焦民一终字第426号
　
三、基本案情
　 疾控中心系原武陟县卫生防疫站。王善林借用焦作市第二建筑工程公司资质与武陟县卫生防疫站签订《建设工程施工合同》。合同约定：由焦作市第二建筑工程公司承包“河南省武陟县疾病预防控制中心”大楼，承包范围为招标规定的土建、水、电安装工程，包工包料。开工日期为2003年12月28日，竣工日期为2004年8月18日。工程质量标准为合格。合同价款为122万元。合同订立后，王善林组织了施工。2009年9月份，建筑方、施工方协商，订立了工程进度协议书，约定施工方必须于2004年10月30日前交工，如不能按时交工，每延误一天按总工程款0.05%扣除滞纳金（按延误天数累计计算）。该工程于2005年5月28日经竣工验收合格。施工期间，王善林先后从疾控中心处取款106万元。为讨要剩余工程款，王善林于2007年3月16日，向武陟县人民法院提起诉讼，请求疾控中心支付剩余工程款。经审计，工程总价款为1238968.38元。经过审理，武陟县人民法院于2007年8月20日作出判决，认定王善林借用焦作市第二建筑工程公司的名义与武陟县卫生防疫站订立的合同，因违反了法律的强制性规定，合同无效。判决疾控中心给付王善林工程款178968.38元。之后，疾控中心不服，提起上诉，本院于2009年6月11日作出（2007）焦民终字第1075号判决，认定合同违反法律的规定，应为无效合同。扣除5%的工程维修保证金，改判由疾控中心支付王善林工程款117019.96元。后疾控中心以王善林延误工期为由，要求其承担滞纳金，王善林不愿履行，形成纠纷，疾控中心起诉。
　　
四、法院审理
原审认为：疾控中心起诉要求王善林因延误工期414天，按照总工程款0.05%扣除滞纳金，共计赔偿疾控中心256464元的请求，属于依据合同要求王善林承担的违约责任。因涉案建设工程施工合同已被（2007）武民初字第359号民事判决书、（2007）焦民终字第1075号民事判决书认定无效，根据合同法的规定“无效的合同自始没有法律约束力”，因合同无效，合同条款中的关于滞纳金的条款亦无效，疾控中心的诉请无法律依据，不予支持。
　　原审判决，依据《中华人民共和国合同法》第五十六的规定，经武陟县人民法院审判委员会讨论决定，判决如下：驳回武陟县疾病预防控制中心的诉讼请求。案件诉讼费5150元，由武陟县疾病预防控制中心承担。
　　根据双方当事人的诉辩意见，本院确定案件的争议焦点是：王善林应否赔偿疾控中心延误工期违约金256464元？经征求双方意见，均无异议，本院予以确认。
　　二审法院认为，2004年9月29日和2004年11月27日签订的两份工程进度协议书均是对涉案《建筑工程施工合同》中有关工期约定的变更，是涉案《建筑工程施工合同》的组成部分。涉案《建设工程施工合同》已被（2007）武民初字第359号民事判决书、（2007）焦民终字第1075号民事判决书认定无效，而工程进度协议书中的关于延误工期应予赔偿的条款并不是独立存在的有关解决争议方法的条款，故关于延误工期应予赔偿的条款自始没有约束力。疾控中心主张进度协议书是独立存在的有关解决工程进度的协议书，王善林应承担延误工期赔偿责任，无事实和法律依据，故疾控中心的上诉请求不能成立，本院不予支持。原审认定事实清楚，适用法律正确，并无不当。依照《中华人民共和国民事诉讼法》第一百五十三条第一款第（一）项之规定，判决如下：
　　驳回上诉，维持原判。
　　
五、与本案及类似案例相关的法规索引
《中华人民共和国合同法》
第五十六条　无效的合同或者被撤销的合同自始没有法律约束力。合同部分无效，不影响其他部分效力的，其他部分仍然有效。
　　第五十七条　合同无效、被撤销或者终止的，不影响合同中独立存在的有关解决争议方法的条款的效力。


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编者注：本文摘自北京建设工程与房地产专业律师唐湘凌编著的《中国建设工程施工合同纠纷案例百案评析》。唐湘凌毕业于中国人民大学，法学硕士，从事法律职业十余年。其北京建设工程与房地产专业律师团队处理过大量涉及工程建设、房地产的法律事务，在该领域有丰富经验，欢迎委托处理该领域的法律事务（地址：北京市朝阳区东三环北路38号北京国际中心；电话：186-0190-0636，邮箱：lawyernew@163.com）。