延安市人民政府办公室关于印发《延安市突发事件应急预案管理暂行办法》的通知
陕西省延安市人民政府办公室
延安市人民政府办公室关于印发《延安市突发事件应急预案管理暂行办法》的通知
延政办发〔2012〕89号
各县区人民政府，市政府各工作部门、各直属机构：
《延安市突发事件应急预案管理暂行办法》已经市政府同意，现印发给你们，请认真贯彻执行。
二○一二年七月二日
延安市突发事件应急预案管理暂行办法
第一章 总 则
第一条 为规范全市突发事件应急预案（以下简称应急预案）管理工作，增强应急预案的科学性、针对性和可操作性，全面提高应急预案体系建设水平，根据《中华人民共和国突发事件应对法》、《国家突发公共事件总体应急预案》、《陕西省突发公共事件总体应急预案》及《延安市突发公共事件总体应急预案》，结合我市实际，制定本办法。
第二条 应急预案是各县区、各部门、各单位为预防和处置可能发生的突发事件，预先制定的工作计划或行动方案。
第三条 应急预案管理是规划、组织、指导、检查应急预案体系建设的重要工作，包括预案编制、审批、发布、演练、修订、宣传、培训等环节。
第四条 应急预案管理工作应当坚持统一规划、分类指导、分级负责、属地为主、科学管理的原则。
第五条 全市各级应急管理办公室（以下简称应急办）负责应急预案管理，制定本辖区应急预案体系建设规划，指导、检查应急预案编制、实施工作。
第六条 各级政府、各工作部门必须高度重视应急预案管理工作，并由同级财政部门给与经费保障。
第二章 应急预案种类和内容
第七条 应急预案体系包括总体应急预案、专项应急预案、部门应急预案、县区应急预案、基层组织和单位应急预案、重大活动应急预案六类。
（一）市级总体应急预案是我市应对特别重大、重大、较大、一般突发公共事件的规范性文件，总体阐述延安市应急方针、政策、应急组织机构及相应的职责和应急行动的总体思路。
（二）市级专项应急预案是市政府及其有关部门为应对某一种或某几种突发公共事件而制定的涉及数个部门职责的行动方案。由市政府有关部门牵头制定，报市政府批准后实施。专项应急预案是在总体应急预案的基础上充分考虑了某种特定危险的特点，对应急的形势、组织机构、应急活动等进行更具体的阐述，具有比较强的针对性。
（三）市级部门应急预案是市政府各部门根据市级总体应急预案、专项应急预案和部门职责为应对突发公共事件制定的行动方案，由有关部门制定印发，报当地政府备案，针对性更强。
（四）县区应急预案是县区人民政府制定的总体应急预案、专项应急预案和部门应急预案等。
（五）基层组织和单位应急预案是指乡镇（街道办事处）、村委会（社区）、学校及各类企事业单位为应对各类突发事件而制定的具体行动方案。
（六）重大活动应急预案是指举办大型会展和文化体育等重大活动时，主办单位针对可能发生的紧急情况制定的紧急行动方案。
第八条 应急预案内容主要包括总则、组织指挥体系与职责、预防与预警机制、处置程序与措施、应急保障措施、恢复与重建措施、监督管理、附则、附件等。
（一）总则。包括风险隐患分析、编制目的、编制依据、适用范围和工作原则等。
（二）组织指挥体系与职责。包括突发事件应对的领导机构、工作机构、现场指挥机构、专家组的组成及其职责等。
（三）预防与监测预警。包括监控、排查风险隐患等应急准备措施、突发事件的预警分级标准、预警信息发布或解除程序等。
（四）处置程序与措施。包括信息报告与发布、应急预案启动、分级响应、先期处置、分级应急和应急结束的程序与措施等。
（五）应急保障措施。包括资金、物资、技术、通信、治安、应急队伍、社会动员、交通和医疗卫生救援保障等。
（六）恢复与重建措施。包括善后处置、调查评估、恢复与重建、信息发布等。
（七）监督管理。包括应急预案学习、宣传、培训、演练及责任、奖惩等管理内容。
（八）附则。包括名词术语解释、预案生效时间等。
（九）附件。包括应急处置工作流程图、应急处置联系人和联系方式、应急资源情况一览表和相关应急预案名录等。
第九条 各类应急预案应根据其不同功能和作用，科学确定内容，做到切合实际、重点突出、易于操作、科学实用。
（一）总体应急预案应当突出原则性、指导性，着重对突发事件分类分级、工作原则、预案体系、组织机构、运行机制、应急保障等内容做出原则规定。
（二）专项应急预案应当对突发事件的类型级别、处置机构、应对方式、措施、程序等做出明确、具体规定。
（三）部门应急预案应当按照其职能，落实岗位责任，明确应对突发事件职责权限、工作任务和应对措施。
（四）基层单位应急预案应当着重规定突发事件发生后先期处置的具体程序和措施，力求做到简明扼要、好记管用。
（五）重大活动应急预案应当针对活动中可能出现的突发事件，预先对相关应急机构的职责、任务和预防性措施做出安排，防患于未然。
第三章 应急预案编制
第十条 编制应急预案应遵行以下原则：
（一）合法性原则。符合有关法律、法规及其他有关规定，充分体现以人为本，预防为主、预防与处置相结合等应急管理的工作原则。
（二）可行性原则。认真进行风险评估，全面分析应急资源需求与现状，力求应急措施明确具体，符合处置突发事件的实际，便于操作。
（三）简便性原则。内容完整，格式规范，重点突出，结构严谨，条理清楚，表述准确，简便易行。
（四）协调性原则。加强与应急预案相关部门的协调与沟通，确保上下级应急预案之间和同一层面应急预案之间的衔接协调，增强应急预案体系的协调性。
第十一条 编制应急预案应当遵循以下步骤：
（一）成立应急预案编写小组；
（二）开展风险分析研判；
（三）进行应急能力评估；
（四）组织起草；
（五）评审；
（六）审批；
（七）发布。
第十二条 市级总体应急预案的编制程序：
（一）市应急办负责组织起草；
（二）征求各县区及相关部门和市应急管理专家组意见；
（三）组织专家评审；
（四）市应急办将总体应急预案连同专家评审意见及意见采纳情况说明、应急预案涉及的相关法律法规一并报市政府办公室核审后提交市政府常务会议审定。
第十三条 市级专项应急预案的编制程序：
（一）由市级专项应急预案牵头部门商责任部门负责起草；
（二）征求应急预案涉及相关单位的意见；
（三）起草单位会同市应急办组织专家评审；
（四）报市政府审定。
第十四条 市级部门应急预案的编制程序：
（一）市级有关部门负责起草；
（二）起草单位组织评审；
（三）报市政府分管领导审定。
第十五条 各县区人民政府总体应急预案、专项应急预案、部门应急预案参照市级对应应急预案的编发程序办理。
第十六条 基层应急预案由基层组织和单位负责起草、组织评审、征求意见，报其主管部门或上一级政府审批。
第十七条 重大活动应急预案按照“谁主办谁负责”的原则，由主办或承办单位负责起草。由市委、市政府主办或承办的市级大型活动应急预案，参照市级专项应急预案的编制程序办理。由市级相关部门、单位主办或承办的大型活动应急预案，参照市级部门应急预案的编制程序办理。
第十八条 总体应急预案、专项应急预案、部门应急预案应编制简本或操作手册。
第四章 应急预案发布与备案
第十九条 市级总体应急预案以市政府文件印发。市级专项应急预案以市政府办公室文件印发。市级部门应急预案以本部门文件印发。基层组织和单位应急预案以编制单位名义印发。重大活动应急预案由活动主办或承办单位印发。
第二十条 总体应急预案报上一级政府备案。市级专项应急预案、部门应急预案报上一级政府相关部门和本级应急办备案。基层单位应急预案报所在地县级应急办备案。重大活动应急预案，均需于举办活动3天前报送上一级政府或主管部门备案。
第二十一条 报送应急预案应以书面文件一式5份，并附电子文档（WORD格式）。
第二十二条 各类应急预案应及时向社会公布。对确需保密的应急预案，按有关保密规定执行。
第五章 应急预案演练与修订
第二十三条 应急预案发布后，预案编制部门和单位应当及时组织预案演练，通过演练检验预案、完善预案、磨合机制、锻炼队伍。
第二十四条 应急预案演练应当坚持“统一规划，分项实施，突出实战，适应需求”的原则，按照计划准备、组织实施、评估总结三个阶段进行。
第二十五条 专项应急预案演练原则上三年组织一次。部门应急预案演练原则上二年组织一次。基层应急预案演练应当每年组织一次，大型活动应急预案演练可适时组织。演练可采取实战演练、模拟演练、桌面推演、计算机演练等形式。
第二十六条 市、县应急办根据辖区内各部门、单位上报的应急预案演练计划，统筹安排本级政府专项应急预案演练计划，指导、督促有关部门、单位落实演练计划，并派员参加演练活动。
第二十七条 应急预案演练前，组织实施演练的部门、单位必须制定应急预案演练方案。演练方案应当包括演练名称、演练队伍及人员、演练装备、器材、物资保障标准、演练经费来源、演练程序与方法、演练目标等内容。应急预案演练方案应当在演练开始前20天报同级政府应急办审核。
第二十八条 应急预案演练结束后，组织实施单位应当进行评估，评估报告于15日内报同级政府应急办和上一级政府主管部门。
第二十九条 应急预案编制部门、单位应根据实际需要和情势变化，针对应急预案演练中发现的问题，及时修订预案。
总体应急预案适时进行修订，专项应急预案、部门应急预案原则上每三年修订一次，基层组织和单位应急预案根据实际情况及时修订。
第三十条 修订中涉及组织职责、工作流程、预警和事件等级指标等变化时，应按本办法规定的编制应急预案的程序办理；其他修订由应急预案编制单位将变更部分报本级应急办备案。
第六章 应急预案宣传与培训
第三十一条 各级政府、各部门、各单位应当加强应急预案宣传、培训工作，使各级领导、应急管理人员和广大人民群众熟悉、掌握、了解应急预案内容和要求。
第三十二条 总体应急预案、专项应急预案的牵头部门应在应急预案批准发布20天内，将该应急预案的要点解读、宣传通稿和应急预案简本报本级政府应急办，由应急办会同同级宣传部门审核，经本级政府分管领导同志批准后，通过媒体向社会发布。
其他应急预案，由起草部门或单位编制应急预案简本，做好宣传解读工作。
第三十三条 各级政府应当把应急预案及相关应急管理知识作为公务员培训的内容，加强对领导干部的教育培训。
应急预案培训工作原则上纳入应急管理业务培训计划，由各级应急办商本级组织、人事部门组织实施。
第七章 应急预案检查
第三十四条 各级应急办应加强对应急预案管理工作督促检查。检查的主要内容包括：预案编制、指挥机构、应急准备、应急保障、宣传演练、信息报送和常态管理等。
第三十五条 建立应急预案管理工作评比考核机制，将其纳入应急管理工作考核内容，表彰奖励先进。
第三十六条 对未按照规定编制、修订应急预案的，或未按应急预案规定履行相关职责，造成严重后果的，依据有关法律法规及规定，追究相关单位和当事人责任。
第八章 附则
第三十七条 本办法适用于本市辖区内各级政府、各部门、各单位。
第三十八条 本办法自发布之日起施行。
国务院办公厅转发国家旅游局关于加强旅游工作意见的通知(附英文)
国务院办公厅
国务院办公厅转发国家旅游局关于加强旅游工作意见的通知(附英文)
国务院办公厅
国家旅游局《关于加强旅游工作的意见》已经国务院同意，现转发给你们，请结合本地区、本部门的实际情况贯彻执行。 旅游业是一项综合性事业，涉及航空、交通、文化、建设、轻工、纺织、商业等许多部门，各有关部门要积极配合和支持，共同努力，推动我国旅游事业更加健康
、协调地发展。关于加强旅游工作的意见 党的十一届三中全会以来，在改革、开放方针的指引下，我国旅游事业迅速发展，在增加我国非贸易外汇收入、促进对外经济贸易和文化交流、增进同世界各国人民的相互了解和友谊等方面发挥了积极作用。目前我国旅游业的发展已具备了相当的
基础和进一步加快发展的基本条件，国际旅游业持续稳定发展的大趋势也有利于我们把旅游事业搞上去。为进一步加强对旅游工作的协调管理，争取我国旅游业有一个更大的发展，现提出如下意见：
一、加强旅游管理工作，搞好各级旅游管理机构改革。各省、自治区、直辖市人民政府及旅游重点城市，特别是旅游资源比较丰富的热点地区，要按照党政分开、政企分开和精简、统一的原则，从当地情况和发展国际国内旅游业的需要出发，结合地方机构改革，统筹安排，建立健全旅
游管理机构。各级旅游管理部门要切实转变职能，划清职责范围，合理配置机构。为切实搞好政企分开，需做到：（一）旅游部门主管领导不得兼任地方旅游公司、旅行社或饭店的经理；（二）旅游局与其直属企业要在人、财、物管理方面完全分开，使旅游企业真正做到自主经营、自负盈
亏；（三）各级旅游管理部门开展旅游业务的费用，由各级财政安排。为了加强旅游管理部门与旅游经营单位之间的联系，国家旅游局将根据工作需要，适当调整“中国旅游协会”、“中国旅游饭店协会”，成立“中国国内旅游协会”，协助旅游主管部门协调与各有关部门的关系，研究指
导国内旅游业发展中的有关事宜。
二、进一步明确国家旅游局的行业管理范围和管理权限，建立分级管理的办法和制度。全国所有的旅游企业事业单位，包括旅游院校和科研单位，经营国际、国内旅游业务的旅行社，各类旅游涉外饭店、宾馆、餐馆及旅游车船公司，对外开放的重点旅游风景区、游览点、旅游商品经销
店以及派驻国外的旅游办事机构、国外在华开设的旅游办事机构等，其隶属关系均不变，但旅游局要按照国家的有关规定，实行行业管理和检查监督。各级旅游管理部门对各级各类旅游企业，要一视同仁。国家旅游局要按此原则，会同有关部门研究制定分级管理办法，并严格旅游企业审批
制度。所有旅游企事业单位都要接受行业管理和监督。
三、全面深化改革，实行承包经营责任制。各级旅游管理部门和办有旅游企业的部门，可结合本地区、本部门的具体情况，根据国家有关规定，研究提出在国营、集体旅游企业实行承包经营责任制的具体计划和实施步骤，并使之配套、完善和深化。在实行承包经营责任制中，可根据不
同工作性质（旅行社、旅游涉外饭店、旅游车船队等）和不同经营情况（盈利企业、还贷企业、亏损企业等），采取不同的承包经营方式。凡是有外汇收入的企业，要承包创汇指标，并制定相应的结汇管理办法。有条件的企业，可以逐步建立企业风险基金。要采取招标招聘等多种形式，通
过竞争确定承包者。承包合同期限，一般不应少于3年。承包合同一经确定，承发包双方都要严格履行，不得违反。实行承包经营责任制，要和改进企业管理、促进企业内部管理制度的改革紧密结合起来，按照责、权、利相结合的原则，进一步改革和完善企业的劳动工资制度，严格考核和
奖罚制度。
四、改革旅行社管理体制。鼓励、支持国旅、中旅、青旅三大骨干旅行社向建立企业联合体和企业集团的方向发展。对已开办的各类旅行社，国家旅游局和地方旅游管理部门要按照《旅行社管理暂行条例》和《旅行社管理暂行条例实施细则》进行考核和整顿。各类旅行社都要切实搞好
企业内部改革，进一步挖掘潜力，促进经营管理水平和服务质量的提高。
五、加强旅游对外宣传招徕工作，努力开拓国际客源市场。国家旅游局要进一步加强对国际客源市场的调查研究，制定开拓国际市场的具体规划并组织实施。驻外旅游办事处要搞好国际旅游市场调研和宣传招徕，负责各外联单位在外宣传招徕的管理工作，积极开展与驻在国有关机构、
旅行社和旅游批发商等的联系，并注意搜集和反馈有关信息。各驻外办事机构在驻在国法律许可的范围内，也可酌情开展一些有偿服务或经营性活动。各外联单位在对外推销旅游线路时，要互相配合，顾全大局，不得低于保护价竞销或相互贬低。鼓励提倡各外联单位自愿组织起来，开展对
外联合推销。对于违反外联纪律的，国家旅游局和地方旅游管理部门要根据情节轻重给予行政处分或经济处罚。为适应我国旅游业发展的需要，旅游宣传推销经费可逐年有所增加。今后各外联单位开展对外联合推销活动，可采取收费的办法，凡参加及受益单位均需缴纳一定费用。
六、加强对新建旅游涉外饭店的宏观管理，推进饭店管理制度改革。各级旅游管理部门要认真贯彻执行今年9月22日国务院发布的《楼堂馆所建设管理暂行条例》，会同当地计划部门，对本地区旅游涉外饭店项目进行认真清理。今后，各地一般不要再建设高档旅游涉外饭店。温冷点
地区可根据旅游客源市场需求，酌建中低档饭店（可视需要在中档饭店内设若干高档房间）。北京、上海、广州、桂林、西安、杭州等旅游热点城市，原则上不再批准中外合资或合作建造饭店。要按照国办发〔1988〕17号文件精神，加快建立我国自己的饭店管理公司。对确需新建中
外合资、合作饭店的，必须按照国发〔1986〕101号和国办发〔1988〕32号文件有关规定办理。对于由国家旅游局投资或参与投资建设的旅游风景区和游览点，地方旅游管理部门要参与领导和管理。推进饭店管理制度的改革。全国旅游涉外饭店星级评定工作，已有具体标准和
实施办法，要抓紧进行，争取明年底完成。要逐步建立旅游涉外饭店（包括各类旅行社和旅游车船公司）营业许可证发放和吊销制度。旅游主管部门对有严重违法乱纪行为的旅游企业，可建议工商行政管理部门吊销其营业执照。
七、审慎进行旅游价格方面的改革，加强对旅游外汇收支及结汇的管理。旅游价格问题直接关系到国家的利益和声誉，要不断进行调查研究，作出审慎的改革，并按规定报批。要充分考虑适应国际竞争需要，根据不同旅游路线、不同季节等特点，改革价格结构模式，更加科学、合理地
制定价格（国家旅游局和国家物价局今后主要是制定最高限价和最低保护价）。价格原则一经确定，各级、各类旅游企业都应严格执行。对于违反价格纪律的，要严肃处理。 国家旅游局要会同国家统计局、国家外汇管理局、财政部、中国银行等部门，在加强对旅游外汇收支统计工作的同
时，进一步加强对旅游外汇的收支管理，建立旅游外汇结汇制度，并纳入计划；要研究制定《旅游外汇管理办法》和《旅游外汇财务管理办法》，报国务院批准后实施，以尽快扭转目前旅游外汇收入流失严重的状况。
八、大力发展旅游商品、旅游纪念品的生产和销售，进一步提高我国旅游业的创汇水平和经济效益。搞好旅游商品、旅游纪念品的生产和销售是旅游业一个重要组成部分，也是为国家创汇的重要途径之一。要逐步建立起全国旅游商品、旅游纪念品的生产和销售网络。要以国家旅游局所
属的“中国旅游服务公司”系统、轻工部现有的“中国旅游产品生产供应公司”系统、商业部现有的“中国友谊服务公司”系统为基础，发挥其主导作用，进一步扩大业务，形成各具特色、经营不同旅游商品和旅游纪念品的企业体系。这些企业系统，可以有计划地兴办一批旅游纪念品生产
基地和研究国际旅游商品、旅游纪念品市场行情、开发新产品的科研单位，逐步使科研开发与产供销紧密结合。要鼓励各地特别是旅游重点地区大力发展具有民族风格、地方特色的旅游商品和旅游纪念品的生产，增加花色品种，广开货源渠道，改善销售服务，加强市场管理。要落实国务院
早已确定的“旅游商品创汇视同外贸出口创汇”的规定，并研究制定具体办法；对外贸出口中属于非实行出口许可证管理的商品，要进一步扩大对国外旅游者的销售；旅游商品、旅游纪念品的销售价格，要根据不同商品的货源情况、国际市场行情和经贸部门的具体销售方针，灵活掌握；发
展旅游商品、旅游纪念品生产所需国内紧缺的专用原材料，各级物资部门要纳入供货渠道；必须由国家统一进口的原材料，要纳入国家进口计划；对所需进口的专用原材料，按国办发〔1987〕16号文件有关规定执行。北京、上海、广州是海外旅游者出入境的三大口岸，要逐步建设成
为亚洲地区有一定规模和声誉的旅游购物城市。 目前一些旅游涉外饭店用大量外汇进口内装修材料、卫生洁具、机电设备和零部件，为尽快改变这种状况，今后对凡属于国内已能生产的产品，价格合理，质量、交货期等方面又能保证需要的，应一律停止进口。建议由有关部门提出限制进
口的产品目录，并由行业归口管理部门进行审批。
九、加强旅游从业人员的队伍建设，抓好职业道德和职业纪律教育。要进一步抓好旅游院校教育工作和从业人员的培训工作，大力培养不同层次、不同类别的旅游专业人才。要强化职业道德和职业纪律教育，不断提高旅游从业人员的政治、业务素质，树立旅游职业的光荣感和责任感，
反对各种不正之风，进一步提高旅游服务质量，搞好优质服务，使我国旅游业在国际上建立良好的信誉和形象。
十、加强与各有关部门的协调配合。旅游业是一项综合性事业，其发展不仅取决于旅游部门本身的工作，而且与航空、交通、城建、园林、文物、文化、轻工、纺织、商业、宗教事务等很多部门的工作紧密相关。旅游业又是一项跨地区的行业，大量的组织工作和实际工作要靠地方去做
，需要协调一致。各级旅游管理部门要进一步与有关部门密切配合，共同努力，促进我国旅游事业更加健康协调地发展。
CIRCULAR OF THE GENERAL OFFICE UNDER THE STATE COUNCIL ON THEAPPROVAL AND TRANSMISSION OF A REPORT SUBMITTED BY THE NATIONAL TOURISMADMINISTRATION CONCERNING THE STRENGTHENING OF TOURIST WORK
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 UNDER THE STATE COUNCIL ON THE
APPROVAL AND TRANSMISSION OF A REPORT SUBMITTED BY THE NATIONAL TOURISM
ADMINISTRATION CONCERNING THE STRENGTHENING OF TOURIST WORK
(December 21, 1988)
The Report, "Suggestions Concerning the Strengthening of Tourist Work",
submitted by the National Tourism Administration, has been approved by the
State Council and is hereby transmitted to you for implementation in the
light of the actual conditions of the respective localities and
departments.
The tourist industry is a comprehensive undertaking which involves
departments such as aviation, communications, culture, construction, light
industry, textile industry, and commerce. All the departments concerned
shall coordinate and support each other and make joint efforts to promote
the sound and coordinated development of tourism in our country.
SUGGESTIONS CONCERNING THE STRENGTHENING OF TOURIST WORK
Since the conclusion of the Third Plenary Session of the Eleventh Central
Committee of the Communist Party of China, under the guidance of the
policy of reform and opening to the outside world, tourism has been
developing very rapidly in our country; and it has played an active part
in increasing our country's non-trade foreign exchange earnings, in
boosting international trade and cultural exchange, and in promoting the
mutual understanding and friendship between peoples throughout the world.
At present, our country possesses a fairly good foundation for the
development of tourism and the necessary conditions for speeding up such
development. The general trend of continuous and steady development of the
international tourism is also favourable to us for promoting our tourist
industry. In order to further strengthen the coordinated administration of
tourist work and strive for a greater development of our tourist industry,
we hereby advance the following suggestions:
1. Strengthening the administration of the tourist industry and doing a
good job in the reform of tourism administration organs at various levels.
The people's governments of various provinces, autonomous regions, and
municipalities directly under the Central Government, as well as tourist
cities, especially those favourite haunts with relatively rich tourist
resources, shall, in accordance with the principles of "separating Party
organs from government organs", "separating government organs from
enterprises", and "simplified and unified administration", and in the
light of local conditions and needs of the development of international
and domestic tourism, set up and improve the tourism administration organs
by combining them with the reform of local setups and making overall
arrangements. The tourism administration departments at various levels
shall make timely and specific adjustments to their responsibilities,
clearly define their scope of duties, and rationally deploy their
organizations. In order to effect the separation of government organs from
enterprises, it is imperative to lay stress on the following measures:
(1) The persons in charge of the tourism administration departments shall
not assume concurrently posts of manager of local tourist companies,
tourist agencies, or hotels;
(2) The tourism bureaus shall be completely separated from the enterprises
directly under them in the administration of such aspects as personnel,
finance, and materials, so that the tourist enterprises shall carry on
their business operations independently, and assume sole responsibility
for their profits and losses;
(3) The expenses for the tourism administration departments at various
levels to conduct tourist business operations shall be appropriated by the
finance departments at various levels. In order to strengthen the
connections between tourism administration departments and tourist opera-
ting units, the National Tourism Administration shall, in accordance with
the requirements of work, make necessary adjustments with regard to the
"China Association of Tourism" and the "China Association of Tourist
Hotels", and establish thereby the "China Association of Domestic
Tourism", which shall assist the competent authorities for tourism in
coordinating relations with other departments concerned and in studying
and providing guidance to the development of domestic tourism.
2. Further clarifying the scope of responsibility and the limits of powers
of the tourist administration bureaus, and establishing a system of graded
administration. The subordinative relationship of all the tourist
enterprises and tourist institutions throughout the country-including
institutes and schools of tourism, research institutes of tourism, tourist
agencies that are engaged in the international and domestic tourist
industries; various categories of tourist hotels, guest houses,
restaurants, and tourist automobile and vessels companies for the
reception of foreign tourists; key tourist scenic spots, tourist
attractions, and shops selling tourist goods that are open to foreigners;
tourist representative offices abroad, as well as the tourist
representative offices established in China by foreign tourist agencies-to
the competent administrative authorities directly over them shall remain
unchanged; but the tourist bureau shall, in accordance with the provisions
of the State, implement the system of trade administration, inspection,
and supervision. The tourism administration departments at various levels
shall treat tourist enterprises of various categories equally without
discrimination. The National Tourism Administration shall, in accordance
with the aforesaid principle, and working in coordination with other
departments concerned, make a study of, and work out, ways to implement
the system of graded administration and effect a stricter procedure in
examining and approving the establishment of tourist enterprises. All the
tourist enterprises and tourist institutions shall, without exception,
subject themselves to trade administration and supervision.
3. Deepening the reform in a comprehensive way and implementing the
responsibility system of contracted business operations. The tourism
administration departments at various levels and the departments that run
tourist enterprises shall, taking into consideration the actual conditions
of the local areas and of their own departments, and in accordance with
the pertinent provisions of the State, make a study of, and submit a
report on, a specific plan and practicable procedures for the
implementation of the responsibility system of contracted business
operations in state-run and collectively-run tourist enterprises and, at
the same time, formulate other provisions to perfect such a system. In the
course of implementing the aforesaid responsibility system of contracted
business operations, different forms of contracted business operations may
be adopted, in accordance with the differences in the nature of business
operations (tourists agencies, tourist hotels specialized in receiving
foreign guests, fleets of tourist automobiles and vessels) and business
operations of different conditions (enterprises with profits, enterprises
that have to repay loans, enterprises suffering losses and with a
deficit). All those enterprises that have foreign exchange earnings shall
carry out a contracted target for earning foreign exchange, and work out a
corresponding method for the administration of the settlement of the
exchange. Enterprises, which possess the necessary conditions, may
gradually set up risk funds for themselves. The contractor shall be
finally determined, through various kinds of competition, such as by
inviting tenders, or by advertising for employment. The contract period
shall, in principle, be no shorter than 3 years. Once a contract is
confirmed and signed, the two parties, the contractor and the party
awarding the contract, shall execute the contract strictly, and under no
circumstances shall it be violated. The implementation of the
responsibility system of contracted business operations calls for a close
integration of the improvement of enterprise management and the promotion
of reform in the internal administration system of enterprises, and for
further efforts in reforming and improving the labour wage system and the
policy of reward and punishment, in accordance with the principle of
combining responsibility, power, and profit.
4. Reforming the administration system of tourist agencies. The three
backbone travel services-China International Travel Service, China Travel
Service, and China Youth Travel Service-shall be encouraged and supported
to develop towards the establishment of an integrated complex or
enterprise group.
With respect to those tourist agencies of various categories that have
already been set up, the National Tourism Administration and local tourism
administration departments shall carry out assessment and rectification in
accordance with the provisions in Interim Regulations on the
Administration of Tourist Agencies and Rules of Implementation for Interim
Regulations on the Administration of Tourist Agencies. Tourist agencies of
various categories shall all carry out effectively the reform in the
internal work of their respective tourist agencies, further tap their
potentials, so as to raise standard of their operation and administration,
and to improve the quality of their services.
5. Strengthening overseas tourist publicity and the endeavouring for
soliciting tourists, and striving to expand the international market for
foreign tourists. The National Tourism Administration shall make further
efforts in investigating and analyzing the market for international
tourists, work out specific plans for the expansion of the said
international market, and take measures to put it into practice. Our
resident representative tourist offices abroad shall try their best to
investigate into the market for international tourists and carry out
publicity work for soliciting visiting tourists, take the responsibility
to supervise the publicity and soliciting endeavour carried out abroad by
units in charge of liaison work with foreign countries, actively make
contacts with the institutions concerned, tourist agencies and tourist
wholesalers in countries where our representative tourist offices are
resident, and pay attention to collecting and feeding back relevant
information. Various resident representative tourist offices abroad may,
within the scope of law of the respective countries where they are
resident, and at their discretion, undertake some paid services or other
business operational activities.
Various units in charge of liaison work with foreign countries, while
canvassing among foreigners for tourists itineraries, shall work in close
coordination and take the interests of the whole country into account.
They may not play down the others and compete against them by offering
prices lower than the protective price. Various units in charge of liaison
work with foreign countries shall be encouraged to collaborate on a
voluntary basis to canvass jointly among foreigners. With respect to those
who have violated external liaison disciplines, the National Tourism
Administration and the local tourism administration departments shall,
depending on the seriousness of the cases, impose disciplinary sanctions,
or economic penalty, on the violators. In order to meet the needs of the
development of the tourist industry in our country, the outlay for
conducting tourist publicity and canvassing abroad may be increased with
each passing year. From now on, various units in charge of liaison work
with foreign countries, when canvassing jointly among foreigners may
collect service charges: all units that take part in the canvassing
activities and derive benefits there from shall pay the charges.
6. Strengthening the macro-administration of those newly-built tourist
hotels that specialize in receiving foreign guests and promoting the
reform of hotel administration system. The tourism administration
departments at various levels shall conscientiously implement Interim
Regulations on the Construction and Administration of Storied Buildings,
Halls, Hotels and Guest Houses, promulgated by the State Council on
September 22, 1988, and, working in coordination with the local planning
departments, carry out a checking-up on the projects of local tourist
hotels that specialize in receiving foreign guests. From now on, in
principle, no more high-grade tourist hotels that specialize in receiving
foreign guests shall be built in any place. In areas less frequented than
favourite tourist haunts, medium-and low-grade hotels may be built, in
accordance with the tourist market's demand, and depending on the actual
circumstances, (a number of highgrade rooms may be provided in a
medium-grade hotel, if necessary). In such highly frequented tourist
cities as Beijing, Shanghai, Guangzhou, Guilin, Xi'an, and Hangzhou, no
new hotel construction projects with Chinese-foreign joint investment or
by Chinese-foreign cooperation shall, in principle, be approved. In
accordance with the guideline of Document No. 17 (1988) issued by the
General Office under the State Council, it shall be imperative to speed up
the establishment of the hotel administration company of our own country.
In cases where necessity arises for the building of new hotels in form of
Chinese-foreign joint ventures or Chinese-foreign contractual joint
venture, the cases shall be handled in accordance with the provisions in
Document No. 101 (1986) and Document No. 32 (1988), issued by the General
Office under the State Council. As regards the tourist scenic spots and
tourist attraction, built and facilitated with, or partly with the
investment of the National Tourism Administration, the local tourism
administration departments shall take part in the leadership and
administration of the aforesaid tourist places.
Promoting the reform in the hotel administration system. There are now
specific standards for the "star-rating" of the country's tourist hotels
that specialize in receiving foreign guests; the rating process shall be
speeded up and strive to complete the task by the end of next year. The
system for issuing and revoking business licence for tourist hotels that
specialize in receiving foreign guests (including various categories of
tourist agencies and tourist automobiles and vessels companies) shall be
gradually set up. With respect to those tourist enterprises that have
committed serious illegal acts, the competent authorities for tourism may
suggest to the relevant administrative departments for industry and
commerce that the business licences of the aforesaid enterprises be
revoked.
7. Carrying out, with caution, the reform in tourist prices, and
strengthening the administration of the receipts and expenditures in
foreign exchange as well as the settlement of exchange relating to tourist
enterprises. The problem of tourist prices has a direct bearing on the
interests and reputation of the State; therefore it is imperative to
conduct careful investigation and studies before taking cautious steps in
the reform, and submit the reform plan to higher authorities for approval.
It is necessary to reform the price structure so as to fix the tourist
prices more scientifically and reasonably by taking into full
consideration the necessity to meet the challenge of international
competition, and in accordance with the special features of different
tourist itineraries and different seasons (from now on, the National
Tourism Administration and the State Administration for Commodity Prices
shall chiefly fix the ceiling price and the floor price - the protective
price). Once the price principles are determined, the tourist enterprises
at various levels and of various categories shall execute them strictly.
Those who have violated the price discipline shall be dealt with
seriously.
The National Tourism Administration shall, working in coordination with
such departments as the State Statistical Bureau, the State Administration
of Foreign Exchange Control, the Ministry of Finance, and the Bank of
China, strengthen the statistical work on the tourist enterprises'
receipts and expenditures, and tighten the control of the foreign exchange
receipts and expenditures of the tourist enterprises, establish the system
for the settlement of tourist foreign exchange, and bring this work into
line with the State plan. It is imperative to formulate, through studies,
the Measures for Foreign Exchange Control in Tourism and the Measures for
the Financial Administration of Foreign Exchange in Tourism, and submit
these two documents to the State Council for approval before
implementation so as to reverse as early as possible the present situation
of serious drain on foreign exchange earnings from tourism.
8. Developing vigorously the manufacture and marketing of tourist goods
and tourist souvenirs, increasing the volume of the foreign exchange
earning from tourism in our country and improving its economic results.
The manufacture and marketing of tourist goods and tourist souvenirs
constitute an important component part of the tourist industry, and is
also an important channel for earning foreign exchange for the State. It
is imperative to establish gradually a nationwide network for the
production and marketing of tourist goods and tourist souvenirs. For the
aforesaid purpose, the "China Tourist Services Company" under the National
Tourism Administration, the "China Tourist Products Production and Supply
Company" under the Ministry of Light Industry, and the "China Friendship
Services Company" under the Ministry of Commerce shall be taken as the
foundation; their leading role shall be brought into full play, and their
businesses shall be further expanded so that they shall grow into
complexes of enterprises specialized in different lines of business,
handling different assortments of tourist goods and tourist souvenirs.
These complexes of enterprises may establish, in a planned way, a number
of production bases for the production of tourist souvenirs, and a number
of research institutes for carrying on studies in the marketing quotations
of international tourist goods and tourist souvenirs and for developing
new products, so that scientific research and product development will be
combined in the integrated process of production-supply-marketing. It is
necessary to encourage various places, especially the key tourist areas,
to vigorously develop the production of tourist goods and tourist
souvenirs that are of national style with various local colours, to
increase designs and varieties, to expand channels for sources of goods,
to improve sales service, and to strengthen market administration. It is
imperative to implement conscientiously the provisions approved long ago
by the State Council: "the foreign exchange earned through the sales of
tourist goods shall be deemed as the foreign exchange earned by foreign
trade" and to formulate, through studies, specific measures for carrying
out the said provisions; with respect to those export goods which do not
come under the licence control, it is important to expand their sales to
foreign tourists; the selling prices of tourist goods and tourist
souvenirs shall be handled flexibly in accordance with the different
conditions of goods supply, the international market quotations, and the
specific marketing policy pursued by the economic and trade departments.
The special raw and processed materials which are needed for the
development of the production of tourist goods and tourist souvenirs and
are in short supply in the country, shall be brought into the goods supply
channels handled by the departments of goods and materials at various
levels; those raw and processed materials that are imported solely by the
State shall be brought into the plan for importation executed by the
State; the special imported raw and processed materials needed shall be
handled in accordance with the pertinent provisions in Document No. 16
(1987) issued by the General Office under the State Council. As Beijing,
Shanghai, and Guangzhou are the three main ports of entry and exit for
overseas tourists, they shall be turned into cities with sizable tourist
shopping centres and good reputation in Asia. At present, some tourist
hotels that specialize in receiving foreign guests spend a large amount of
foreign exchange in importing fitting-up materials, sanitary utensils,
machinery and electrical equipment, and spare and component parts. In
order to change this situation without delay, from now on, all similar
products which can already be manufactured in our country and reasonably
priced and whose quality and delivery time can be guaranteed shall cease
to be imported. We suggest that a catalogue of products to be restricted
in importation be put forward by the departments concerned and the
importation of the aforesaid products shall be examined and approved by
the administrative departments of the trades concerned.
9. Strengthening the building of a contingent of tourist personnel and
paying close attention to the education in professional ethics and
professional discipline. It is imperative to improve the educational work
in schools and institutes of tourism and the professional training of
tourist personnel, especially the training of qualified specialized
personnel at various levels and of different categories. It is also
imperative to intensify the education in professional ethics and
professional discipline, so as to improve the political and professional
quality of tourist personnel, to foster a sense of honour and
responsibility, to oppose all kinds of unhealthy tendencies, to improve
the quality of tourist services and offer high-quality services, thus
enabling our tourist industry to establish good international reputation
and image.
10. Strengthening the coordination between different departments
concerned. The tourist industry is a comprehensive undertaking, the
development of which relies not only on its own work, but also on the
close coordination with such organizations as the departments of aviation,
communications, city construction, gardens and parks, historical relics,
culture, light industry, textile industry, commerce, and religious
affairs. The tourist industry is also a trans-regional trade, and a large
amount of organizational work shall be done by the local departments; a
harmonious coordination is thus indispensable. Tourist departments at
various levels shall strengthen their coordination with other departments
concerned and make joint efforts in promoting a sound and co-ordinated
development of the tourist industry in our country.
1988年12月21日
