关于推进依法行政搞好行政许可工作的意见
国家安全生产监督管理总局 国家煤矿安全监察局
安监管政法字〔2004〕125号
关于推进依法行政搞好行政许可工作的意见
为贯彻落实《行政许可法》和国务院《全面推进依法行政实施纲要》(以下简称《纲要》),依法规范安全监管监察行政许可工作,现提出如下意见:
一、从立党为公、执政为民的高度,认真贯彻落实好《行政许可法》和《纲要》
《行政许可法》对行政许可的基本原则、行政许可的设定、实施行政许可的机关、实施行政许可的程序、行政许可事项的监督检查和法律责任等作出了明确规定。这一法律的颁布实施,标志着政府对社会事务的管理走向制度化、规范化、法制化,对于提高政府行政水平、加快建设法治政府,形成行为规范、运转协调、公正透明、廉洁高效的行政管理体制具有十分重要的意义。
《纲要》以邓小平理论和“三个代表”重要思想为指导,总结了近年来推进依法行政的基本经验,围绕全面建设小康社会的目标,明确规定了今后十年全面推进依法行政的指导思想、基本原则、主要任务和措施,是进一步推进我国社会主义政治文明建设的重要政策文件。贯彻落实好《纲要》,关系到全面推进依法行政的进程,关系到法治政府的建设。
各单位要从立党为公、执政为民的高度,充分认识《行政许可法》和《纲要》的重大意义,认真学习领会《行政许可法》和《纲要》,切实抓好宣传贯彻落实工作。
二、采取各项措施,推进依法行政工作
按照合法行政、合理行政、程序正当、高效便民、诚实守信、权责统一的要求,必须做到有权必有责、用权受监督、违法受追究、侵权要赔偿。各级安全生产监督管理部门、煤矿安全监察机构要采取有力措施,全面推进安全监管监察中的依法行政工作。
一是建立健全科学民主决策机制。建立完善单位内部重大问题决策规则、决策程序以及决策的监督制度和机制,按照“谁决策、谁负责”的原则,建立健全决策责任追究制度。建立健全公众参与、专家论证和政府决定相结合的行政决策机制。
二是提高制度建设质量。按照条件成熟、突出重点、统筹兼顾的原则规范规章制度的制定和修订工作。改进立法工作方法,建立健全专家咨询制度、立法征求意见制度,制定部门规章先在网上公开征求意见。建立健全规章修改和废止的工作制度以及规章、规范性文件的定期清理和定期评价制度。
三是转变政府职能,提高服务意识。建立健全国家局有关信息公开制度,方便公众对公开的政府信息的获取、查阅。建立健全行政许可的配套规章制度和相应标准规范。
四是规范行政执法行为。建立健全有关行政处罚、行政许可以及日常行政执法的案卷评查制度,对公民、法人和其他组织的有关监督检查记录、证据材料和执法文书进行立卷归档。完善行政执法的规章制度和标准。建立健全行政执法的定期汇报制度。完善行政执法人员的资格制度。建立健全行政执法责任制,规范执法程序。建立执法过错责任追究制。
五是完善行政执法的监督制度和机制。贯彻《行政复议法》,建立健全有关行政复议程序和工作制度。建立健全行政复议责任追究制度。建立健全上级执法机关对下级执法机关的经常性监督制度。贯彻《安全生产法》,建立重大事故隐患和安全生产违法行为举报奖励制度。
六是提高机关工作人员依法行政的观念和能力。建立领导干部和机关工作人员学法制度,定期或者不定期对处级以上领导干部进行依法行政知识培训。鼓励机关工作人员参加各种形式的法律知识学习,强化机关工作人员依法行政知识的培训。建立健全机关工作人员依法行政情况考核制度,把依法行政情况作为考核机关工作人员的重要内容。建立行政执法绩效评估、奖惩机制。
三、依法严格规范行政许可行为
严格规范行政许可行为是依法行政一项重要内容,根据《行政许可法》的规定,经国务院行政审批改革工作领导小组批准,国家局保留15项行政许可项目(详见附件)。目前,各省、自治区、直辖市也都在进行行政许可项目的清理工作,根据地方性法规的规定,也将有一些行政许可项目予以保留。这些行政许可项目是我们强化安全监管监察执法的重要手段,一定要用好。要严格依照法律、法规的规定,办理行政许可事项。
一是规定行政许可项目由哪一级安全监管部门或者煤矿安全监察机构实施的,必须由这一级部门或者机构实施,确实需要委托下一级部门或者机构实施的,必须制定相应的规章。
二是不得以行政许可的名义任意收费,解决权力与利益脱钩的问题。除法律、法规已明确有些行政许可项目可以收费外,一般行政许可项目不应收费,确实需要收取费用的,也要通过正常途径依法办理。
三是不得任意设置行政许可项目。《行政许可法》对行政许可的设置权作出了严格规定,今后规章和规范性文件不得设置任何行政许可。
四、认真做好有关行政许可项目配套规章制度和标准的制定工作
按照《行政许可法》的规定,行政许可事项、条件、程序、期限、收费、实施主体等必须公开、透明。
一是建立行政许可项目的公开制度。根据《行政许可法》的规定,行政许可实施机关必须事前通过一定方式,公布行政许可的事项、依据、条件、数量、程序、期限以及需要提交的全部材料目录和申请书示范文本等,增加透明度,便于群众查询、监督,防止行政许可过程的暗箱操作。
二是对有些行政许可条件、程序、期限、收费等内容不明确的,要尽快做好配套规章制度和标准的制定工作。同时,尽快修订与《行政许可法》不相适应的有关规章制度和标准。制定和修订规章制度和标准时,要广泛吸取各方面的意见,尤其是被许可人的意见。
三是建立健全有关行政许可项目的档案管理制度。对公民、法人和其他组织的有关行政许可材料,要做到逐一建档归案。允许公民、法人和其他组织查阅有关行政许可项目的档案。
五、切实加强行政许可的监督管理
《行政许可法》在行政许可的监督管理方面作出了很多规定,各单位要结合实际,尽快建立健全有关行政许可的监督制度。行政许可实施机关及其工作人员在实施行政许可时,不得妨碍被许可人正常的生产经营活动,不得索取或者收受被许可人的财物,不得谋取其他利益。为方便社会监督,各单位要向社会公开监督举报电话、信箱或者网址。要尽快制定有关行政许可工作的责任追究制度。
附件:国家安全生产监督管理局 国家煤矿安全监督局保留的15项行政许可项目目录
二○○四年九月六日
附件:
国家安全生产监督管理局 国家煤矿安全监察局
保留的15项行政许可项目目录
1.矿山救护队资质认定,由国家煤矿安全监察局实施
2.安全培训机构资格认可,由各级安全生产监督管理部门实施
3.矿山建设项目和用于生产、储存危险物品的建设项目的安全设施设计审查,由各级安全生产监督管理部门、煤矿安全监察机构实施
4.矿山建设项目和用于生产、储存危险物品的建设项目的安全设施竣工验收,由各级安全生产监督管理部门、煤矿安全监察机构实施
5.煤矿矿用产品安全标志认证机构资质认可,由国家煤矿安全监察局实施
6.安全生产检测检验机构资质认可,由省级以上安全生产监督管理部门、煤矿安全监察机构实施
7.安全评价和咨询机构资质认可,由省级以上安全生产监督管理部门、煤矿安全监察机构实施
8.高危企业的主要负责人和安全生产管理人员的安全资格认定,由省级以上安全生产监督管理部门实施
9.特种作业人员操作资格认定(特种设备作业人员除外),由市级以上安全生产监督管理部门、煤矿安全监察机构实施
10.危险化学品包装物、容器定点生产企业审查,由省级以上安全生产监督管理部门实施
11.危险化学品安全生产、经营许可证核发,分别由省级以上安全生产监督管理部门和市级以上安全生产监督管理部门实施
12.设立危险化学品生产、储存企业审批,由省级以上安全生产监督管理部门实施
13.烟花爆竹安全生产许可证核发,由省级以上安全生产监督管理部门实施
14.烟花爆竹销售许可证核发,由县级以上安全生产监督管理部门实施
15.矿山企业安全生产许可证核发,由省级以上安全生产监督管理部门、煤矿安全监察机构实施
外商投资开发经营成片土地暂行管理办法(附英文)
国务院
外商投资开发经营成片土地暂行管理办法(附英文)
1990年5月19日,国务院
第一条 为了吸收外商投资从事开发经营成片土地(以下简称成片开发),以加强公用设施建设,改善投资环境,引进外商投资先进技术企业和产品出口企业,发展外向型经济,制定本办法。
第二条 本办法所称成片开发是指:在取得国有土地使用权后,依照规划对土地进行综合性的开发建设,平整场地、建设供排水、供电、供热、道路交通、通信等公用设施,形成工业用地和其他建设用地条件,然后进行转让土地使用权、经营公用事业;或者进而建设通用工业厂房以及相配套的生产和生活服务设施等地面建筑物,并对这些地面建筑物从事转让或出租的经营活动。
成片开发应确定明确的开发目标,应有明确意向的利用开发后土地的建设项目。
第三条 吸收外商投资进行成片开发的项目,应由市、县人民政府组织编制成片开发项目建议书(或初步可行性研究报告,下同)。
使用耕地一千亩以下、其他土地二千亩以下,综合开发投资额在省、自治区、直辖市人民政府(包括经济特区人民政府或者管理委员会,下同)审批权限内的成片开发项目,其项目建议书应报省、自治区、直辖市人民政府审批。
使用耕地超过一千亩、其他土地超过二千亩,或者综合开发投资额超过省、自治区、直辖市人民政府审批权限的成片开发项目,其项目建议书应经省、自治区、直辖市人民政府报国家计划委员会审核和综合平衡后,由国务院审批。
第四条 外商投资成片开发,应分别依照《中华人民共和国中外合资经营企业法》、《中华人民共和国中外合作经营企业法》、《中华人民共和国外资企业法》的规定,成立从事开发经营的中外合资经营企业,或者中外合作经营企业,或者外资企业(以下简称开发企业)。
开发企业受中国法律的管辖和保护,其一切活动应遵守中华人民共和国的法律、法规。
开发企业依法自主经营管理,但在其开发区域内没有行政管理权。开发企业与其他企业的关系是商务关系。
国家鼓励国营企业以国有土地使用权作为投资或合作条件,与外商组成开发企业。
第五条 开发企业应依法取得开发区域的国有土地使用权。
开发区域所在的市、县人民政府向开发企业出让国有土地使用权,应依照国家土地管理的法律和行政法规,合理确定地块范围、用途、年限、出让金和其他条件,签订国有土地使用权出让合同,并按出让国有土地使用权的审批权限报经批准。
第六条 国有土地使用权出让后,其地下资源和埋藏物仍属于国家所有。如需开发利用,应依照国家有关法律和行政法规管理。
第七条 开发企业应编制成片开发规划或者可行性研究报告,明确规定开发建设的总目标和分期目标,实施开发的具体内容和要求,以及开发后土地利用方案等。
成片开发规划或者可行性研究报告,经市、县人民政府审核后,报省、自治区、直辖市人民政府审批。审批机关应就有关公用设施建设和经营,组织有关主管部门协调。
第八条 开发区域在城市规划区范围内的,各项开发建设必须符合城市规划要求,服从规划管理。
开发区域的各项建设,必须符合国家环境保护的法律、行政法规和标准。
第九条 开发企业必须在实施成片开发规划,并达到出让国有土地使用权合同规定的条件后,方可转让国有土地使用权。开发企业未按照出让国有土地使用权合同规定的条件和成片开发规划的要求投资开发土地的,不得转让国有土地使用权。
开发企业和其他企业转让国有土地使用权,或者抵押国有土地使用权,以及国有土地使用权终止,应依照国家土地管理的法律和行政法规办理。
第十条 开发企业可以吸引投资者到开发区域投资,受让国有土地使用权,举办企业。外商投资企业应分别依照《中华人民共和国中外合资经营企业法》、《中华人民共和国中外合作经营企业法》、《中华人民共和国外资企业法》的规定成立。
在开发区域举办企业,应符合国家有关投资产业政策的要求。国家鼓励举办先进技术企业和产品出口企业。
第十一条 开发区域的邮电通信事业,由邮电部门统一规划、建设与经营。也可以经省、自治区、直辖市邮电主管部门批准,由开发企业投资建设,或者开发企业与邮电部门合资建设通信设施,建成后移交邮电部门经营,并根据双方签订的合同,对开发企业给予经济补偿。
第十二条 开发企业投资建设区域内自备电站、热力站、水厂等生产性公用设施的,可以经营开发区域内的供电、供水、供热等业务,也可以交地方公用事业企业经营。公用设施能力有富余,需要供应区域外,或者需要与区域外设施联网运行的,开发企业应与地方公用事业企业按国家有关规定签订合同,按合同规定的条件经营。
开发区域接引区域外水、电等资源的,应由地方公用事业企业经营。
第十三条 开发区域地块范围涉及海岸港湾或者江河建港区段的,岸线由国家统一规划和管理。开发企业可以按照国家交通主管部门的统一规划建设和经营专用港区和码头。
第十四条 开发区域内不得从事国家法律和行政法规禁止的经营活动和社会活动。
第十五条 以举办出口加工企业为主的开发区域,需要在进出口管理、海关管理等方面采取特殊管理措施的,应报经国务院批准,由国家有关主管部门制定具体管理办法。
第十六条 开发区域的行政管理、司法管理、口岸管理、海关管理等,分别由国家有关主管部门、所在的地方人民政府和有管辖权的司法机关组织实施。
第十七条 香港、澳门、台湾地区的公司、企业和其他经济组织或者个人投资从事成片开发,参照本办法执行。
第十八条 本办法自发布之日起在经济特区、沿海开放城市和沿海经济开放区范围内施行。
INTERIM MEASURES FOR THE ADMINISTRATION OF THE FOREIGN-INVESTEDDEVELOPMENT AND MANAGEMENT OF TRACTS OF LAND
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)
INTERIM MEASURES FOR THE ADMINISTRATION OF THE FOREIGN-INVESTED
DEVELOPMENT AND MANAGEMENT OF TRACTS OF LAND
(Promulgated by Decree No. 56 of the State Council of the People's
Republic of China on May 19, 1990 and effective as of the date of
promulgation)
Article 1
These Measures are formulated for the purpose of attracting foreign
investment for the development and management of tracts of land
(hereinafter referred to as "tract development") so as to intensify the
construction of public works, improve the environment for investment,
introduce foreign-invested technically advanced enterprises and export-
oriented enterprises and develop the export-oriented economy.
Article 2
The term "tract development" as used in these Measures means that after
obtaining the right to the use of state-owned land, the investors shall
carry out, as planned, comprehensive development and construction on the
land, including levelling the ground and constructing such public works as
water supply and drainage systems, power and heat supply systems, roads
and communications networks, and communications facilities, so that
conditions shall be created for the land to be used for industrial or
other construction purposes. The investor shall then transfer the right to
the use of the land for operating public utilities, or proceed to
construct such above-ground buildings as industrial houses and the
supporting facilities for production and everyday life services and engage
in the business activities of transferring or leasing these above-ground
buildings.
Definite development targets shall be specified for tract development and
there shall be definite construction projects that are intended to make
use of the developed land.
Article 3
With respect to a project to attract foreign investment for tract
development, the municipal or county people's government shall organize
the drawing up of a tract development project proposal (or a feasibility
study report, the same hereinafter). With respect to a tract development
project which is to make use of 1,000 mu or less of arable land or 2,000
mu or less of other land and whose amount of investment for comprehensive
development falls within the limits of powers for examination and approval
of the people's government of the province, autonomous region or
municipality directly under the Central Government (including the people's
government or administrative committee of a special economic zone, the
same hereinafter), the project proposal shall be submitted to the people's
government of the province, autonomous region or municipality directly
under the Central Government for examination and approval. With respect
to a tract development project which is to make use of more than 1,000 mu
of arable land or more than 2,000 mu of other land and whose amount of
investment for comprehensive development exceeds the limits of powers for
examination and approval of the people's government of the province,
autonomous region or municipality directly under the Central Government,
the project proposal shall be submitted, through the people's government
of the province, autonomous region or municipality directly under the
Central Government, to the State Planning Commission for examination,
verification and overall balancing and then to the State Council of the
People's Republic of China for examination and approval.
Article 4
Foreign investors who intend to invest for tract development shall, in
accordance with the respective provisions of the Law of the People's
Republic of China on Chinese-Foreign Equity Joint Ventures, the Law of the
People's Republic of China on Chinese-Foreign Contractual Joint Ventures
and the Law of the People's Republic of China on Foreign-Capital
Enterprises, form a Chinese-foreign equity joint venture, or a Chinese-
foreign contractual joint venture or a foreign-capital enterprise
(hereinafter referred to as a "development enterprise") to engage in the
development and management of the tract of land.
Development enterprises shall be governed and protected by the law of
China and all their activities shall abide by the laws and regulations of
the People's Republic of China. Development enterprises shall have the
right to act on their own in business operations and management in
accordance with the law, but they shall have no administrative power in
their development areas. The relationship between a development enterprise
and other enterprises shall be of a commercial nature.
The State encourages the state-owned enterprises to form development
enterprises with foreign investors by using the right to the use of state-
owned land as investment or condition of co-operation.
Article 5
Development enterprises shall obtain the right to the use of the state-
owned land in their development areas in accordance with the Law.
In assigning the right to the use of State-owned land to a development
enterprise, the people's government of the municipality or county where
the development area is located shall, in accordance with the laws and
administrative rules and regulations of the State on the administration of
land, rationally specify the bounds of the tract of land, the purpose of
its use, the term of assignment, the assignment fee and other conditions,
sign a contract for assigning the State-owned land and submit it for
approval in accordance with the limits of powers for examination and
approval with respect to the assignment of the right to the use of State-
owned land.
Article 6
After the right to the use of State-owned land has been assigned, the
resources and objects buried thereunder shall continue to be owned by the
State. If it is necessary to exploit and utilize them, the exploitation
and utilization shall be administered in accordance with the pertinent
laws and administrative rules and regulations of the State.
Article 7
A development enterprise shall draw up a tract development plan or a
feasibility study report which shall specify the overall targets and
respective targets for different stages, the specific details and
requirements in the actual development, and the plan to utilize the
developed land.
The tract development plan or feasibility study report shall, after
examination and verification by the municipal or county people's
government, be submitted to the people's government of the province,
autonomous region or municipality directly under the Central Government
for examination and approval. The examining and approving authorities
shall organize the competent authorities concerned to provide co-
ordination concerning the construction and management of the relevant
public works.
Article 8
If the development area is within the limits of a planned urban area, the
various items of development and construction shall be in conformity with
the requirements of city planning and be submitted to the administration
of the planning.
The various items of construction in a development area shall be in
conformity with the laws, administrative rules and regulations and
standards of the State concerning environmental protection.
Article 9
A development enterprise may transfer the right to the use of the state-
owned land only after it has carried out the plan of tract development and
satisfied all the conditions prescribed in the contract for assigning the
right to the use of the state-owned land. No development enterprise that
fails to invest for the development of the land in accordance with the
conditions prescribed in the contract for assigning the right to the use
of the state-owned land and the requirements of the plan for tract
development may transfer the right to the use of the state-owned land.
The transfer or mortgage of the right to the use of state-owned land by
development enterprises and other enterprises, and the termination of the
right to the use of state-owned land shall be handled in accordance with
the laws and administrative rules and regulations of the State on the
administration of land.
Article 10
A development enterprise may attract investors to the development area to
make investment, accept the transferred right to the use of state-owned
land and launch enterprises. Enterprises with foreign investment shall be
established in accordance with the respective provisions of the Law of the
People's Republic of China on Chinese-Foreign Equity Joint Ventures, the
Law of the People's Republic of China on Chinese-Foreign Contractual Joint
Ventures and the Law of the People's Republic of China on Foreign-Capital
Enterprises.
The launching of enterprises in the development areas shall be in
conformity with the State policy concerning the investment in industries.
The State encourages the launching of technically advanced enterprises and
export-oriented enterprises.
Article 11
The postal and communication undertakings in the development areas shall
be placed under the unified planning, construction and management of the
postal department. Or they may, with the approval of the province,
autonomous region or municipality directly under the Central Government,
be constructed with investment by a development enterprise; or the
development enterprise and the postal department may pool their investment
for the construction of communications facilities, which, in either case,
shall be transferred, after completion, to the postal department for
operation, with financial compensation to be given to the development
enterprise in accordance with the contract signed between the two parties.
Article 12
Development enterprises that invest in public utilities of their own such
as power stations, heat stations and water plants within the development
area may operate the business of power, water and heat supplies within the
development area or hand them over to the local enterprises of public
utilities for operation. If the capacity of the public utilities is in
surplus, which renders it necessary to be supplied to places outside the
development area or to be connected to a network outside the development
area for operation, the development enterprise shall sign a contract with
the local enterprises of public utilities in accordance with the pertinent
provisions of the State and operate in accordance with the conditions
prescribed in the contract. If it is necessary for a development area to
use water and power resources from outside, the business thereof shall be
operated by the local enterprises of public utilities.
Article 13
If a development area covers a coastal port or bay, or a river port
sector, the coastline or riverside line shall be placed under the unified
planning and administration of the State. The development enterprise may
construct and operate a special port area and wharf in accordance with the
unified planning of the competent state communication authorities.
Article 14
No business activities or social activities that are banned by the laws
and administrative rules and regulations of the State may be engaged
within the development areas.
Article 15
If special administrative measures are required in respect of import and
export administration and Customs administration for a development area
which is mainly intended for the operation of export processing
enterprises, these shall be submitted to the State Council of the People's
Republic of China for approval and specific measures of administration
shall be formulated by the competent authorities of the State.
Article 16
The general administration, judicial administration, port administration
and Customs administration in a development area shall be organized and
exercised respectively by the competent authorities of the State, the
people's government of the locality where the development area is
situated, and the judicial organs that have jurisdiction.
Article 17
Tract development with investment by firms, enterprises and other economic
organizations or individuals from the regions of Hong Kong, Macao and
Taiwan shall be governed with reference to these Measures.
Article 18
These Measures shall be put into effect within the limits of the specific
economic zones, the open coastal cities and the open coastal economic
zones as of the date of promulgation.