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
我县刑释解教人员再犯罪案件的特点及预防对策
近年来,刑罚处罚释放人员、解除劳动教养人员(以下简称刑释解教人员)再犯罪案件居高不下,2001年至2003年我县检察机关共向审判机关提起公诉649人,其中属于刑释解教人员再犯罪的有84人(除1名女性外其余均为男性),占三年提起公诉总人数的12.9%。刑释解教人员再犯罪,严重危害了我县的社会治安和政治稳定。本文通过对刑释解教人员再犯罪案件进行深入调查,发现其特点,剖析其原因,探寻其对策,以引起有关部门的重视和社会各界的关注,最大限度地预防和减少刑释解教人员再犯罪。
一、刑释解教人员再犯罪的特点
(一)刑释解教人员再犯罪呈现“七多”现象。一是农民多,有68人,占80.9%,无业和待业人员有14人,其他2人。二是青壮年多,再犯罪人员中,20岁至40岁的有64人,占总数的76%,其中20至30岁的有37人,30至40岁的有27人,另外还有10名18岁以上19岁以下的青少年,特别是在调查的15名“三进宫”和“五进宫”人员中,再犯罪年龄均在20岁以上40岁以下。三是本县人多,有78人,占92.8%,其他为本省外县人。四是文化层次低的多,初中以下文化程度的有81人,占96.4%,其中初中37人,小学42人,文盲2人,尤以小学为最多。五是“二进宫”人员比例多。第二次进监狱的有69人,占总数的82.2%;而“多进宫”人员相对较少:“三进宫”人员有12人,占14.2%;最少的为“五进宫”有3人,占3.5%。六是累犯多,在84名刑释解教人员中,五年内再犯罪的累犯有60人,占总数的71.4%。七是伙同他人共同作案的多,有57人,占67.8%,且结伙作案持续时间长;其中伙同其他刑释人员共同作案的有23人,占共同作案总数的40.3%。
(二)从案件性质看,刑释解教人员再犯罪(最后一次犯罪)主要涉及侵犯财产类犯罪。其中侵犯财产类犯罪64人,占总数的76.1%。侵犯公民人身权利、民主权利罪的有9人,占总数的10.7%,其他犯罪11人。在调查中发现,刑释解教人员前后犯罪侵犯同一类型客体的多。在84名刑释解教人员中,前后犯罪属于同一类型(如侵犯财产罪中的盗窃罪、抢劫罪)的有54人,占总数的64.3%,其中前后犯罪触犯同一罪名的有25人,占总数的29.7%。另外,刑释解教人员从初次犯罪到再犯罪,普遍是从秘密作案到公开作案、从一般侵财型犯罪发展到暴力侵犯人身、财产性犯罪,可见,刑释解教人员再犯罪的主观恶意加深,胆大妄为不计后果,情节更为恶劣,社会危害性升级,影响极坏。
(三)刑释解教后至再犯罪的时间间隔较短。在69名“二进宫”人员中,刑释解教后再犯罪时间间隔不到3年的有46人,占累犯总数的54.7%,可以说,刑释解教后3年内是再犯罪的高发期。其中一年以下的有26人,在半年内再犯罪的有15人,三个月的有9人,间隔最短的仅有23天,一至三年的有20人;三年以上的有23人。刑释解教后在15名“多进宫”人员中,每次刑释后至再犯罪的间隔都在3年以下的有11人。
(四)刑罚较轻。在84名刑释解教人员中,有54人的刑期在3年以下,占总数的64.3%。其中在69名“二进宫”人员中,被判处刑期在3年以下的有46人,占总数的54.7%,4年以上10年以下有14人,另有管制1人、拘役2人,劳教6人;在15名“三进宫”和“五进宫”人员中,不论前罪还是后罪,每次刑期都在3年以下的有8人。而且,84名刑释解教人员中,在刑罚执行期间,有17人减刑、有4人假释。
二、刑释解教人员再犯罪的主要原因
自身原因
(一)无技术特长,缺少谋生手段。一些刑释解教人员尤其是因一念之差误入歧途的初犯偶犯,大多能真诚悔改,有的还立功减刑或提前解教,成为自食其力的劳动者。但是,随着经济体制改革,城镇下岗职工的增多出现就业难问题,改革开放后农村土地政策的调整,面临人多地少劳力过剩的状况,很多刑释解教人员由于他们自身文化修养和素质较差,缺少技术特长,缺乏竞争力,加之他们曾被判刑或劳教,社会对他们容纳度降低,就业机会大大减少,他们重返社会后找不到工作,又没有地种,失去了生活保障。同时还受到人们的歧视,这样就会使他们在心理上承受精神压力和生活艰辛,这双重压力往往会使他们很容易产生自暴自弃的想法,导致他们重新走上犯罪道路。如仅有小学文化的陈×才,其曾在24岁因盗窃被劳动教养1年6个月,此后又有三次因敲诈勒索、强奸、盗窃在监狱里度过了十个春秋,直到2002年2月释放,但他已过而立之年却无一技之长,终觉生活艰难,陈×才只得重操旧业,于2003年1月在本镇某工场盗窃财物,再一次走进了监狱。在84名再犯罪的刑释解教人员中,大多数属无技术特长,缺少谋生手段,就业无门的。
(二)恶习难弃,重蹈覆辙。一些违法犯罪人员进入监管场所前染有吸毒和赌博恶习,刑释解教后往往抑制不住诱惑,不惜再次以身试法,有的则因回归社会后处处碰壁而破罐破摔,重拾恶习。如曾×军,1997年11月因敲诈勒索被法院判处有期徒刑二年,1999年刑满释放后染上毒瘾,其从2002年3月开始,为了获得毒品供自己吸食,按照李某的吩咐,先后把1.9克海洛因毒品贩卖给吸毒人员。还有些刑释解教人员难脱好逸恶劳恶习,他们重返社会后为追求奢侈的生活、高档的消费和舒适的享受,不惜以身试法。如黄×峰,平日游手好闲,追求不劳而获,2002年8月其以借用为名,将亲戚的一辆摩托车卖出得款供自己挥霍,后被法院判处拘役3个月于同年10月25日释放,出来仅23天即于11月18日又伙同刑释人员古×辉,用同样的作案手段骗得他人一辆摩托车卖出,将赃款共同挥霍。
(三)犯罪主观恶意深,有的还以犯罪为职业。有的刑释解教人员自小染上不良习气,违法犯罪后不认罪悔罪,不接受教育改造,一旦刑释解教,便故态复萌,重操旧业。更有一些“三进宫”以上者,不是积极地从中吸取教训,反而消极地认为是社会与他们过不去,因而憎恨社会。他们有的向涉世未深人员传授犯罪方法,有的则变本加厉,刑释后疯狂作案,不少恶性案件都是“多进宫”的刑满释放人员、惯犯和逃犯所为。2001年至2003年,我县县城飞车抢夺案件居高不下,检察机关共提起公诉26名涉案人员,其中有刑释解教人员16人,占总数的61.5%。典型案例如黄×安、蓝×华、马×坤、黄×(女)、谢×、谢×金等6人抢夺案,在2001年间抢夺十余次,抢得钱财共值8万多元,此抢夺团伙中前4人均是刑满释放人员,且均属累犯。
(四)江湖义气,为朋友两肋插刀。刑释解教人员经历复杂,人员交往复杂,除过去一些朋友外,还在“两劳”场所结交了一些人,这些人重哥们义气而不讲法律,甘愿为朋友两肋插刀。如万×刚曾在1999年4月20日因寻衅滋事被法院判处有期徒刑,2001年10月16日晚上,其结识的朋友、刑释人员曾×全等人在县城某酒店停车场与李某等人发生争吵打架,后被民警制止。万×刚得知后即伙同二十多人,手持刀具、铁水管等工具,脱掉上衣,冲到李某等人就医的某门诊部,见人就打见物就砸,砍致轻伤1人、毁坏房门2扇、砸坏小汽车2辆、摩托车6辆,情节恶劣影响极坏。
(五)法律意识淡薄,再次触犯刑律。有些刑释解教人员在监管场所认真服刑改造,思想有了较大转变,回归社会后也能自食其力,但由于法律意识淡薄,不自觉地又触犯了刑律。如张×强非法持有枪支一案,他原系五华县某农场职工,在1990年因犯诈骗罪、销售赃物罪被法院判处有期徒刑5年6个月,1993年4月释放,1994年又因犯销售赃物罪被法院判处有期徒刑3年,1995年12月减刑释放,后张×强经营酒店。为了保证自己的人身财产安全,张×强于2003年2、3月间,从大坝镇七都村邓某手中以二百元购买到一支自制猎枪,并从平南镇丁某手中拿到三发猎枪子弹,放在其酒店的房间里,直至同年7月被发现非法持有枪支。
社会原因
(一)社会歧视。一些刑释解教人员由于有“劣迹”,他们重新走向社会后,一些人不自觉地视之为“另类”,他们在就业、工作、婚姻等方面会遇到比平常人更多的困难,承受的社会压力增大,面对社会的迅速变化,他们往往表现出明显的不适应心理,同时也容易产生一种对社会警惕和排斥心理,较少与平常人交流,最终形成反社会的性格。蒙受歧视而又缺少沟通是导致刑释解教人员走向犯罪的重要原因。
(二)亲友冷落。一个人违法犯罪了,他本人进了监管场所,对其家里影响较大,会不同程度地“连累”了他的家人。对家里出现的这种“不光彩”的事,一些人对“犯了法”的亲属进了“两劳”场所,平时懒得写封信打个电话去安慰和鼓励,到刑释解教后,对亲属的就业、生活不闻不问,严重地挫伤了刑释解教人员的重新做人的信心,最终导致他破罐子破摔。
(三)监管原因。一是一些监狱和劳教场所存在重经济效益,轻改造、教育、管理的状况。在当前市场经济激烈的竞争中,监管场所为了提高经济效益,不可避免地把大量的时间、人力用于单位“搞创收”上,而忽视将更多的精力去做违法犯罪人员的思想改造和为他们日后走向社会有立足之地而进行知识更新、技能培训等方面。二是教育改造手段单一,不能适应新形势下的罪犯思想改造。一方面,管教干部承担着大量违法犯罪人员的劳动教养、劳动改造的管理工作,这使他们难以集中精力,影响了对违法犯罪人员的教育挽救效果。另一方面,监狱主要是通过减刑、假释方法促使罪犯认真改造,缺少人文关怀和有针对性的改造手段。而监狱中实行多年的减刑、假释考核办法,容易造成一些罪犯在改造中投机取巧,处心积虑使自己能得到减刑、假释的机会,但其内心深处的劣性往往没有得到彻底、有效的改造。三是帮教工作未得到很好衔接。刑释解教人员回归社会后,还需要有关部门对他们进行帮教。但由于现在人户分离的现象十分普遍,很多刑释解教人员为了谋生而外出四处打工,使社会上的监管工作不能到位,出现了不少无人监管的情况,一旦有其他因素触发,极易造成再次犯罪。
三、防范刑释解教人员再犯罪的对策和建议
(一)加强教育改造的力度。一是要使监管场所真正成为教育改造违法犯罪人员的地方。不要将劳动改造、劳动教养场所仅仅当作是限制人身自由的场所,而是要作为净化受监管人员心灵的阵地,要保证监管场所把监管力量投入到执行处罚、改造罪犯的工作上来。管教干部要教育受监管人员在改造过程中认识到自己的行为对社会造成的危害后果,从内心深处认识自己的行为性质,自觉地投入改造,从主观上避免再犯罪。要运用科学的管教方法,宣传社会主义伦理、道德,普及法律知识,传授劳动技能,使他们的思想道德水平、文化知识水平和职业技能都有一个很大的提高,帮助他们树立起重新做人的信心,引导他们摆脱因违法犯罪留下的阴影,树立起正确、健康的世界观、人生观、价值观。二是建立减刑考验期制度,大胆适用假释制度。在对服刑人员决定减刑的同时设定一定的考验期,如果罪犯在考验期内不再积极改造并违反监规,可以宣布撤销减刑决定,对其继续执行减刑前的刑期。同时,针对一些监狱“人满为患”的现象,可以考虑适用假释制度,对符合条件的服刑人员大胆适用假释,并设置专门机构负责对假释人员假释期间的监督和考察。
(二)加强对累犯的打击力度。修订后的刑法将以前构成一般累犯的前后罪时间距离由3年延长至5年,一方面会更有助于刑罚特殊预防目的的实现,另一方面也说明累犯对社会治安的危险性更大。依法对累犯严厉惩处,必将有利于有效地遏制刑释人员再犯罪率的上升。特别是在“严打”整治斗争中,对刑释解教人员再犯罪必须从重从快予以打击,始终保持高压态势,方能将其犯罪气焰打下去。加大对刑释解教人员重新犯罪的打击力度,作为司法机关,应本着执法必严的原则,对那些以身试法屡教不改的刑释解教重新犯罪人员、团伙犯罪一定要快捕快诉快审快判,从重打击,扼制犯罪分子的嚣张气焰,以示法律的威严,达到惩治犯罪保护人民的目的。
(三)重视和关心刑释解教人员的就业问题。搞好刑释解教人员回归社会后的就业安置工作,要有创新思路。首先,劳改和劳教场所在改造阶段应适时开展一些职业培训,提高他们回归社会后的就业能力。其次,在主管部门扶持指导下组建以刑释解教人员就业为主的经济实体,做好刑释解教人员过渡性安置就业工作,同时加强建立对其定期的考察制度,帮助其尽快适用新的生活。再次,基层政府职能部门应通过适当形式加强刑释解教人员的法律、素质和专业技术教育;并从实际出发,动员和要求招工单位从着眼于社会稳定的大局出发,在招工就业方面提供机会;对在家务农的刑释解教人员,应保证他们有一定的土地经营,使他们成为自食其力的劳动者。
(四)家庭和亲友要多从精神和生活上予以关心。社会给予刑释解教人员更多的关爱和理解,有关部门和组织切实关心这一特殊群体的生活和工作,是从根本上帮忙和挽救刑释解教人员的方法之一。家庭成员的态度对刑释解教人员的影响相当大,应该用亲情去拉一把,而不要推一把,并要尽量避免刑释解教人员的家庭解体。在他们服刑劳教时要多探望,增强他们重新生活的勇气;当他们重新走进家门时,要真诚相待,精神上多安抚,生活上多关心,尤其是在他们工作、生活中受到挫折后要多鼓励,激发他们重新做人的信心,扬起生活的风帆。
(五)加强基层组织领导,搞好群防群治的社会综合治理工作。作为肩负专政重要职能的司法机关,应依法从重从快严厉打击各种刑事犯罪,但是打击固然重要,决不能因为加大打击力度而疏忽了防患于未然的社会综合治理工作。我们应当在党委政府统一领导安排下,打防结合标本兼治,积极参与社会的综合治理工作,对那些发案率高的乡镇应及时掌握情况,建立联系点帮助基层组织建立一套完整的打防结合的新体系,除对那些突发案件应进行及时处理外,对存在的隐患应及时进行调查研究,制定出相应对策,对发案率高的地区,应加大法制宣传力度,让人们知道什么是守法什么是违法犯罪,应遵守什么样的社会公德,并提高防范意识,做到群防群治,并积极同违法犯罪作斗争,消除犯罪于隐患中。特别是要注意加强预防青少年犯罪,从源头上预防和减少犯罪和再犯罪。
针对刑释解教人员由于承受精神压力和生活艰辛而再犯罪问题,建议司法机关与有关政府部门加强联系建立刑释解教人员管理档案,加强监管工作,加强对他们的考察,对重点人员要建立帮教小组,落实帮教措施,以便随时掌握动态,一旦发现苗头,立即把问题解决和消化在萌芽状态中,努力降低刑释解教人员的重新犯罪率,同时要从政治上更加关心,生活上帮助创造就业机会,使他们体会到党的政策的温暖,从而坚定重新做人为社会创造价值的信念。(广东省五华县人民检察院 张碧波)