一、前言
Introduction
在全球“双碳”目标引领与能源结构加速转型的时代背景下，中国企业凭借技术、成本及全产业链优势，在光伏、风电、储能等国际新能源EPC项目领域出海步伐持续加快，已成为全球新能源基建市场的核心参与力量，行业规模稳步扩张且项目覆盖区域不断拓宽。相较于传统国际工程，此类项目因技术密集型属性呈现出更高的技术壁垒，受东道国能源政策、环保法规及地缘政治影响表现出更强的政策敏感度，且多以项目融资为核心形成深度绑定的多方利益格局，这些特征使得其争议解决在法律适用、责任划分、风险处置等方面更具复杂性与特殊性。
基于此，本文聚焦国际新能源EPC项目争议解决的实务痛点，系统梳理争议成因、类型及典型场景，旨在为中国企业参与跨境新能源项目提供可落地的争议化解路径与全流程风险防控思路，助力企业有效应对跨法域履约挑战、维护合法权益。
Against the backdrop of the global drive toward the dual carbon goals and the accelerated transformation of the energy structure, Chinese enterprises, leveraging their strengths in technology, cost efficiency and the entire industrial chain, have been accelerating their overseas expansion in the field of international new energy EPC projects covering photovoltaic, wind power, energy storage and other sectors. They have emerged as a core participant in the global new energy infrastructure market, with the industry scale expanding steadily and project coverage extending continuously.
Compared with traditional international engineering projects, such projects feature higher technical barriers due to their technology-intensive nature and greater policy sensitivity subject to the impact of host countries' energy policies, environmental regulations and geopolitics. Moreover, most of these projects form a deeply interwoven multi-stakeholder interest structure centered on project financing. These characteristics render the dispute resolution of such projects far more complex and distinctive in terms of applicable law, liability allocation and risk disposal.
Based on the above, this paper focuses on the practical pain points in dispute resolution of international new energy EPC projects, systematically sorts out the causes, types and typical scenarios of disputes, and aims to provide actionable dispute resolution approaches and a full-process risk prevention and control framework for Chinese enterprises participating in cross-border new energy projects. It is intended to help enterprises effectively address the challenges of cross-jurisdictional performance and safeguard their legitimate rights and interests.
二、国际新能源EPC项目的核心特征
Core Characteristics of International New Energy EPC Projects
(一)跨境属性
Cross-border Nature
国际新能源EPC项目的跨境属性贯穿全流程，表现鲜明且复杂：参与主体多元，涵盖中国出海企业、东道国业主、多国设计施工团队、国际设备供应商及跨境融资银团，各方权责与利益诉求差异显著，协同难度大。履约环节需同时遵循中国技术规范、东道国法律要求及国际行业惯例，跨法域法律适用的冲突与衔接问题突出。结算流程涉及跨境支付、外汇兑换及税费申报，需应对不同国家外汇管制政策、汇率波动风险，以及跨境资金流动的合规性要求，进一步增加了项目执行的不确定性。
The cross-border nature of international new energy EPC projects runs through the entire project lifecycle, presenting distinct and complex features: there is a diversity of participants, including Chinese overseas enterprises, host country employers, multi-national design and construction teams, international equipment suppliers and cross-border financing syndicates, with significant differences in the rights, liabilities and interest demands of each party, leading to great difficulties in coordination.
In the performance phase, the projects are required to comply with Chinese technical specifications, host country legal requirements and international industry practices simultaneously, resulting in prominent conflicts and connection issues in the application of cross-jurisdictional laws. The settlement process involves cross-border payment, foreign exchange conversion and tax declaration, which requires addressing foreign exchange control policies of different countries, exchange rate fluctuation risks and compliance requirements for cross-border capital flows, further increasing the uncertainty of project execution.
(二)技术密集性
Technology Intensiveness
国际新能源EPC项目具有鲜明的技术密集型特征：核心设备方面，光伏组件、风电整机、储能系统等需结合东道国自然条件、电网参数及项目实际需求进行定制化研发与生产，对设备兼容性、稳定性及适配性要求极高。并网环节更是面临严苛标准，需满足东道国电网接入规程、频率电压调控、可再生能源消纳等技术规范，且不同国家的并网检测流程、认证要求存在差异，一旦技术参数不达标或认证流程受阻，极易导致项目延误，引发相关争议。
International new energy EPC projects are distinctly technology-intensive: in terms of core equipment, photovoltaic modules, wind turbine generators, energy storage systems and other equipment need to be custom-developed and manufactured in light of the natural conditions, power grid parameters and actual project needs of the host country, imposing extremely high requirements on equipment compatibility, stability and adaptability.
The grid connection phase is subject to even more stringent standards, which require compliance with the host country's technical norms for power grid access procedures, frequency and voltage regulation, and renewable energy consumption. In addition, there are differences in grid connection testing procedures and certification requirements across countries. Failure to meet technical parameters or obstacles in the certification process can easily lead to project delays and trigger relevant disputes.
(三)政策敏感性
Policy Sensitivity
国际新能源EPC项目的政策敏感性极强，深度依赖东道国政策支持与动态调整：能源规划层面，东道国可再生能源发展目标、电网建设布局的变动，可能直接影响项目落地可行性与长期收益。电价补贴政策的取消、下调或发放机制调整，会大幅改变项目盈利模型，引发收益预期纠纷;环评审批则面临动态更新的标准与流程，环保要求升级、审批流程变动可能导致项目停滞，进一步加剧履约风险与争议隐患。
International new energy EPC projects exhibit a high degree of policy sensitivity and are heavily dependent on the policy support and dynamic adjustments of host countries: at the energy planning level, changes in host countries' renewable energy development goals and power grid construction layouts may directly affect the feasibility of project implementation and long-term returns.
The cancellation, reduction or adjustment of the distribution mechanism of electricity price subsidies will drastically alter the project profit model and trigger disputes over revenue expectations; environmental impact assessment (EIA) approval faces dynamically updated standards and procedures, and the upgrading of environmental protection requirements or changes in approval procedures may result in project suspension, further exacerbating performance risks and potential disputes.
(四)融资关联性
Financing Correlation
此类项目呈现显著的融资关联性特征，以项目融资为核心主导模式：资金筹措高度依赖项目未来收益与资产抵押，而非企业主体信用，融资结构复杂且风险集中。银团作为核心融资方，深度介入项目全周期，从前期融资方案设计、资金投放监管，到后期回款账户管控、风险处置，均拥有关键话语权，其权利主张与项目履约、争议解决直接绑定，使得融资相关条款的执行与纠纷处置成为项目推进的重要影响因素。
Such projects demonstrate a prominent feature of financing correlation, adopting a dominant model centered on project financing: fund-raising relies heavily on the project's future returns and asset mortgage rather than the corporate credit of the project entity, leading to a complex financing structure and concentrated risks.
As the core financier, the financing syndicate is deeply involved in the entire project lifecycle, holding decisive speaking rights in aspects ranging from the design of pre-project financing schemes and the supervision of fund disbursement to the post-project control of repayment accounts and risk disposal. Its claims are directly bound to project performance and dispute resolution, making the implementation of financing-related clauses and the disposal of financing disputes a key factor affecting project progress.
三、国际新能源EPC项目争议成因解析
Analysis of the Causes of Disputes in International New Energy EPC Projects
(一)合同层面
Contractual Aspect
合同条款的规范性与完备性是项目顺利推进的基础，而条款瑕疵是争议产生的核心诱因之一。部分项目中，双方对国际工程标准条款的修改缺乏严谨论证，关键条款表述模糊。风险分担约定不明确，未充分覆盖技术风险、政策变动风险等跨境新能源项目的特殊风险。争议解决条款存在疏漏，如未明确管辖机构、法律适用规则或送达方式，导致后续争议发生时，双方缺乏清晰的解决依据，极易引发分歧。
The standardization and completeness of contract clauses form the foundation for the smooth progress of projects, and flaws in clauses are one of the core causes of disputes. In some projects, the parties lack rigorous demonstration when modifying the standard clauses of international engineering, resulting in ambiguous expressions of key clauses.
The agreement on risk allocation is unclear and fails to fully cover the special risks of cross-border new energy projects such as technical risks and policy change risks. There are omissions in dispute resolution clauses, such as the failure to specify the competent authority, applicable law rules or service methods, which leads to the lack of clear resolution basis for the parties when disputes arise subsequently and easily triggers differences.
(二)外部环境层面
External Environmental Aspect
国际新能源EPC项目受外部环境波动影响显著，易滋生争议。东道国法律政策的突发变动，如能源行业监管新规、外汇管制加强等，可能直接打破项目原有的履约基础。地缘政治冲突、国际关系变化等因素，可能导致项目物资运输受阻、人员进出受限。此外，全球能源市场波动、外汇汇率大幅震荡等外部经济环境变化，也会间接影响项目成本与收益，引发付款延迟、履约调整等相关争议。
International new energy EPC projects are significantly affected by fluctuations in the external environment, which easily breed disputes. Sudden changes in the host country's laws and policies, such as new energy industry supervision regulations and strengthened foreign exchange controls, may directly break the original performance foundation of the project.
Factors such as geopolitical conflicts and changes in international relations may lead to obstacles in the transportation of project materials and restrictions on personnel entry and exit. In addition, changes in the external economic environment such as fluctuations in the global energy market and sharp swings in foreign exchange rates will also indirectly affect project costs and returns, triggering relevant disputes such as delayed payments and performance adjustments.
(三)履约层面
Performance Aspect
项目履约环节的流程管控与协同效率，直接关系到争议发生概率。此类项目参与主体多、流程复杂，易出现多主体界面管理混乱，设计、施工、供货等环节衔接不畅的问题。部分参与方未重视证据留存，关键沟通记录、技术交底文件、验收凭证等缺失或不规范，导致争议发生时难以举证。同时，设计方案与现场实际条件不符、施工质量不达标等履约瑕疵，也会直接引发工期延误、费用索赔等争议。
The process control and coordination efficiency in the project performance phase are directly related to the probability of disputes. Such projects involve multiple participants and complex processes, which are prone to chaotic interface management among multiple subjects and poor connection between design, construction, supply and other links.
Some participants neglect evidence preservation, resulting in the absence or non-standardization of key communication records, technical disclosure documents, acceptance certificates and other materials, which makes it difficult to adduce evidence when disputes arise. At the same time, performance defects such as inconsistencies between design schemes and actual on-site conditions and substandard construction quality will directly trigger disputes such as project delays and cost claims.
(四)主体层面
Subject Aspect
参与主体的履约能力与责任划分，是影响项目推进的关键因素。联营体模式下，若各方分工不明确、责任边界模糊，易出现推诿扯皮现象。部分分包商缺乏跨境新能源项目的实操经验，履约能力不足，导致施工质量、进度未达约定标准。此外，业主因资金链断裂、对项目预期调整等原因出现付款延迟，或擅自变更合同要求，也会直接引发与承包方、供应商之间的履约争议。
The performance capacity and liability allocation of participants are key factors affecting project progress. Under the consortium model, unclear division of work and ambiguous liability boundaries among parties can easily lead to the passing of the buck.
Some subcontractors lack practical experience in cross-border new energy projects and have insufficient performance capacity, resulting in failure to meet the agreed standards in terms of construction quality and progress. In addition, employers may delay payments due to capital chain breaks, adjustments to project expectations and other reasons, or unilaterally change contract requirements, which will directly trigger performance disputes with contractors and suppliers.
四、国际新能源EPC项目核心争议
类型与典型场景
Core Dispute Types and Typical Scenarios in International New Energy EPC Projects
(一)主体相关争议
Subject-related Disputes
主体相关争议聚焦于特殊参与方的权责纠纷，东道国政府作为监管方或合作方，其行政行为变动、政策执行偏差可能引发履约障碍。联合体模式下，成员方分工不明、责任划分模糊易导致推诿扯皮。融资财团因资金投放、回款监管等诉求，与项目方在权益实现、风险承担上的分歧，也会触发相关争议，且涉及主体层级多、利益关联复杂。
Subject-related disputes focus on the rights and liability disputes of special participants. As a regulator or partner, the host country government may trigger performance obstacles due to changes in its administrative acts and deviations in policy implementation. Under the consortium model, unclear division of work and ambiguous liability allocation among members can easily lead to the passing of the buck.
Financing consortia may have differences with project parties in terms of interest realization and risk bearing due to demands such as fund disbursement and repayment supervision, which will also trigger relevant disputes involving multiple subject levels and complex interest correlations.
(二)合同履行争议
Contract Performance Disputes
在项目全生命周期中，合同履行争议贯穿各关键环节，表现形式多样，成因复杂，具体可归纳如下：
设计阶段，由于设计标准模糊、设计方案与实际需求偏差、关键技术参数不匹配，以及设计变更流程不规范等问题，易引致返工、索赔及变更管理争议。
开工准备阶段，因开工前置条件未满足、土地权属关系不清或行政审批手续不完备，常引发开工条件争议，进而影响项目时序进度。在前期合规性环节，环境影响评价未获通过或项目本地化合规性未达标，可能导致项目中止或整改，衍生合规性争议。
施工阶段，除常见的工期延误争议(通常由工序衔接不畅、外部环境变化等因素引起，进而触发逾期违约金纠纷)外，还包括分包管理失范、联合体内部权责划分不明、施工范围界定模糊、劳工权益保障争议及施工安全事故责任认定等多类型争议。与此同时，施工质量未达标准、设备存在质量缺陷(含供应商供货质量问题)亦直接引发施工质量争议。
竣工验收与结算支付环节，因验收标准不统一或验收程序不符合规定，易产生验收争议。在结算与付款环节，争议则主要集中于工程量核算、付款节点认定、价款调整机制等方面，其中涉及跨境结算时，汇率波动对成本收益平衡的影响亦常引致价款调整纠纷。
Throughout the project lifecycle, contract performance disputes run through all key links, presenting diverse forms and complex causes, which can be specifically summarized as follows:
In the design phase, problems such as ambiguous design standards, inconsistencies between design schemes and actual needs, mismatches of key technical parameters and non-standard design change procedures can easily lead to rework, claims and change management disputes.
In the pre-construction preparation phase, failure to meet pre-construction conditions, unclear land ownership relations or incomplete administrative approval procedures often trigger disputes over construction conditions, which in turn affect the project schedule. In the pre-project compliance phase, the failure to obtain EIA approval or meet the local compliance requirements of the project may result in project suspension or rectification, leading to compliance disputes.
In the construction phase, in addition to the common disputes over project delays (usually caused by poor process connection, changes in the external environment and other factors, which in turn trigger disputes over liquidated damages for delay), there are also various types of disputes such as irregular subcontract management, unclear internal liability allocation of the consortium, ambiguous definition of construction scope, disputes over the protection of labor rights and interests, and identification of liabilities for construction safety accidents. At the same time, substandard construction quality and equipment quality defects (including quality problems of supplier supplies) also directly trigger construction quality disputes.
In the completion acceptance and settlement payment phase, inconsistent acceptance standards or non-compliant acceptance procedures can easily lead to acceptance disputes. In the settlement and payment phase, disputes mainly focus on engineering quantity accounting, identification of payment nodes, price adjustment mechanisms and other aspects. In cross-border settlements, the impact of exchange rate fluctuations on the balance of costs and benefits often leads to price adjustment disputes.
(三)政策相关争议
Policy-related Disputes
政策相关争议源于东道国制度环境的动态变化，电价补贴的取消、下调或发放规则调整，会直接冲击项目盈利模型，引发情势变更认定与收益补偿纠纷。能源项目备案制改核准制等政策调整，可能导致项目合规成本增加、推进停滞，进而产生履约责任划分争议，此类争议往往因涉及公共政策，处理难度较大。
Policy-related disputes stem from the dynamic changes in the institutional environment of the host country. The cancellation, reduction or adjustment of the distribution rules of electricity price subsidies will directly impact the project profit model and trigger disputes over the determination of changed circumstances and revenue compensation.
Policy adjustments such as the conversion of the record-filing system to the approval system for energy projects may lead to increased project compliance costs and project suspension, thereby triggering disputes over the allocation of performance liabilities. Such disputes are often difficult to handle due to their involvement in public policies.
(四)行政许可争议
Administrative License Disputes
行政许可争议核心围绕审批相关问题展开，环评审批缺失、并网许可未获通过等，会直接导致项目无法正常推进，引发合同目的无法实现的纠纷。审批流程延误、要求变更则可能造成工期顺延、成本增加，双方在责任归属与损失分担上的分歧难以调和，且行政许可的合规性认定需结合东道国法律规定，跨法域处理难度较高。
Administrative license disputes focus on approval-related issues. The absence of EIA approval or failure to obtain grid connection approval will directly prevent the normal progress of the project and trigger disputes over the failure to achieve the contract purpose.
Delays in approval procedures or changes in approval requirements may result in project schedule extension and cost increase, and the differences between the parties in terms of liability attribution and loss sharing are difficult to reconcile. In addition, the determination of the compliance of administrative licenses needs to be combined with the host country's legal provisions, leading to high difficulty in cross-jurisdictional handling.
(五)不可抗力和情势变更争议
Force Majeure & Changed Circumstances Disputes
不可抗力争议多由突发客观事件引发，自然灾害、地缘政治冲突等是否符合不可抗力认定标准，需结合合同约定与东道国法律判断。争议焦点集中于损失范围界定、工期顺延天数核算、各方通知义务履行是否合规等方面，且因不可抗力影响的关联性与复杂性，损失分担方案往往难以达成一致。
与不可抗力紧密相关但法律后果有所不同的情势变更问题，在实践中亦引发诸多争议。当项目所在国经济政策急剧调整、法律法规发生根本性变化、或遭遇极端非自然社会经济波动(如突发性严重通货膨胀、汇率剧烈震荡等)时，相关方常援引情势变更原则，主张合同赖以存在的基础条件发生根本性动摇，请求变更或解除合同。此类争议的核心往往集中于：客观情况变化是否超出正常商业风险范畴、是否达到致使合同目的无法实现的严重程度、以及主张变更合同条款(如调整价款、延长工期)的合理性与公平性等方面。因情势变更与商业风险的界限模糊，且其认定标准严苛，实践中常引发关于风险负担与合同基础丧失的激烈法律争论。
Force majeure disputes are mostly caused by sudden objective events. Whether natural disasters, geopolitical conflicts and other events meet the criteria for the determination of force majeure needs to be judged in light of contract agreements and the host country's laws. The focal points of disputes include the definition of loss scope, the calculation of the number of days for project schedule extension, and the compliance of the performance of notification obligations by all parties. Due to the relevance and complexity of the impact of force majeure, it is often difficult to reach an agreement on the loss sharing plan.
The issue of changed circumstances, which is closely related to force majeure but has different legal consequences, also triggers many disputes in practice. When a project's host country experiences drastic adjustments to economic policies, fundamental changes in laws and regulations, or extreme non-natural socio-economic fluctuations (such as sudden severe inflation, sharp exchange rate fluctuations, etc.), the relevant parties often invoke the principle of changed circumstances, claiming that the fundamental conditions on which the contract is based have undergone a fundamental shake-up, and request to modify or terminate the contract.
The core of such disputes often focuses on whether the changes in objective circumstances go beyond the scope of normal commercial risks, whether they reach a serious level that makes the contract purpose unachievable, and the rationality and fairness of claiming the modification of contract clauses (such as price adjustment and project schedule extension). Due to the blurred boundary between changed circumstances and commercial risks and the stringent criteria for their determination, fierce legal debates over risk bearing and the loss of the contract basis often arise in practice.
(六)融资相关争议
Financing-related Disputes
融资相关争议与项目资金运作深度绑定，收款权质押的效力认定需契合跨境担保法律规则，易因法律适用差异产生纠纷。银团作为融资主导方，其对合同权益的优先权主张，可能与项目方、其他债权人的利益发生冲突。资金投放条件变更、回款监管措施争议等，也会直接影响项目资金链与正常履约。
Financing-related disputes are deeply bound to project capital operation. The determination of the validity of the pledge of payment rights must comply with cross-border secured transaction legal rules, which is prone to disputes due to differences in applicable law. As the dominant financier, the financing syndicate's claim to priority in contract rights and interests may conflict with the interests of project parties and other creditors.
Changes in fund disbursement conditions and disputes over repayment supervision measures will also directly affect the project capital chain and normal performance.
(七)合同转让争议
Contract Assignment Disputes
合同转让争议聚焦于权利义务转移的合规性与效力，项目核心合同的权利义务转让需取得业主书面同意，未履行同意程序的转让行为可能被认定无效。分包合同转让中，受让方的履约能力、资质合规性往往引发业主质疑，进而产生转让效力争议，且此类争议可能牵连原合同的履行稳定性。
Contract assignment disputes focus on the compliance and validity of the transfer of rights and obligations. The transfer of rights and obligations under the core project contract requires the written consent of the employer, and the assignment act that fails to go through the consent procedure may be deemed invalid.
In the assignment of subcontracts, the performance capacity and qualification compliance of the assignee often arouse the employer's doubts, thereby triggering disputes over the validity of the assignment, and such disputes may affect the performance stability of the original contract.
(八)股权转让争议
Equity Transfer Disputes
股权转让争议多因项目公司股权变动引发，若股权转让导致项目实际控制人、核心运营团队变更，业主可能主张构成合同实质变更并行使反制权利。双方在股权转让是否影响合同履约标准、收益分配机制等方面的认知分歧，易触发合同解除、履约调整等相关争议，且涉及股权与合同权益的交叉关联。
Equity transfer disputes are mostly triggered by changes in the equity of the project company. If the equity transfer leads to changes in the actual controller of the project and the core operation team, the employer may claim that it constitutes a material modification of the contract and exercise countervailing rights.
Differences in the cognition of the parties on whether the equity transfer affects the contract performance standards and profit distribution mechanism can easily trigger relevant disputes such as contract termination and performance adjustment, involving the cross correlation between equity and contract rights and interests.
参考文献：
一、中国国内法、司法解释等文件：
[1]《中华人民共和国可再生能源法》
[2]《中华人民共和国招标投标法》
[3]《中华人民共和国外商投资法》
[4]《中华人民共和国仲裁法》
[5]《国务院关于促进光伏产业健康发展的若干意见》
[6]《基础设施和公用事业特许经营管理办法》
[7]《国务院关于加快建立健全绿色低碳循环发展经济体系的指导意见》
二、国际公约与多边条约：
[8]《承认及执行外国仲裁裁决公约》(《纽约公约》)
[9]《联合国国际贸易法委员会国际商事仲裁示范法》
[10]《联合国国际贸易法委员会仲裁规则》
[11]《国际商事合同通则》
三、学术著作：
[12][美]加里·博恩：《国际仲裁：法律与实践》，白麟、陈福勇等译，商务印书馆2015年版
[13]许军珂：《国际私法上的意思自治》，法律出版社2005年版
[14]覃华平：《论国际投资调解机制的续造与中国路径》，载《当代法学》2025年第6期
四、网络资源：
[15]中材节能土耳其 H29 SALIHLI 10MW 生物质发电项目成功并网发电 [EB/OL]. 2021-01-15. http://www.sinoma-ec.cn/contents/268/17232.html.
[16]涉 “一带一路” 国家能源索赔争议中的英国法律查明和适用 [EB/OL]. 中国国际经济贸易仲裁委员会，2026-01-04. https://www.cietac.org/articles/34444.
作者简介：
刘俊丽，高级合伙人，管理主任，国际工程与PPP业务部主任、合伙人会议薪酬与分配委员会主任
拥有24+年法律工作经验，累计办理案件700余件，经办案件标的额超1000亿元人民币。专注于国际 / 国内建设工程投建运全生命周期法律服务(PPP、BOT、EPC、FIDIC等);政府与社会资本合作及特许经营项目全生命周期法律服务;新基建、新能源项目投建营全生命周期法律服务;能源与环境工程(EOD)投建运全生命周期法律服务;并深耕上述领域重大疑难争议解决法律服务。
国际工程与PPP业务团队
「三级 + 四化」全维度服务保障
刘俊丽主任团队搭建了「三层三级」组织架构，推行核心骨干主导 + 执行层高效协同 + 各地分支机构及合作咨询机构联动补位的服务模式，实现专业服务能力与人力调配灵活性的双重保障。
团队以专业化、行业化、团队化、国际化为发展内核，成员均为深耕国内外大型基础设施与公共服务领域的专业律师，多数具备工程、法律双专业背景;同时长期与战略投资、工程咨询等领域专业机构深度合作，组建跨领域服务联盟，为客户提供一体化解决方案。
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