Some Opinions Concerning Stimulating Our Country’s Audiovisual Industry’s Healthy and Orderly Growth

GAPP No. 2009(5)

All relevant central and national  ministry and commission, all democratic party, all civic organization press and publication controlling authorities, all provincial,  autonomous region, municipal Press and Publication Bureaus, Xinjiang Production Contraction Corps Press and Publication Bureau, Liberation Army General Political Department and Propaganda Department Press and Publication Bureau, China Publishing Group Company:

Since reform and opening up, our country’s audiovisual industry has entered a new period of development, and published a large batch of excellent audiovisual products disseminating advanced culture, having important cultural accumulation value and have been greatly welcomed by the masses, have shaped a relatively complete industry system for audiovisual publication, production, duplication, import, wholesale, retail, rental, etc., and has made important contributions to the overall work situation of serving the Party and the State, disseminating scientific and cultural knowledge, satisfying the increasingly growing spiritual and cultural needs of the masses, stimulating the prospering of our country’s socialist culture, etc.

But, in recent years, our country’s audiovisual reform, development and management problems have become increasingly exceptional. The audio and video industry system reform has been correspondingly delayed, industrial structure and deployment are not reasonable; production transformation has been slow, and new business attitudes have not yet materialized; original creative capacity has shrink, a number of audiovisual publication work units’ “emptification” phenomenon is grave; a few publication, production, duplication and distribution enterprises deal unlawfully or against regulations, making audiovisual products with vulgar and even sexual content drifting into the market; a number of responsible and sponsoring work units have abandoned their management duties, a small number of administrative management entities keep watch perfunctorily; piracy and illegal network downloading is grave, market management urgently needs strengthening. In order to further move forward the reform of the Press and Publication system, stimulate the healthy and orderly development of the audiovisual industry, the following opinions are put forward.

I, Guiding ideology and principal needs of stimulating our country’s audiovisual industry’s healthy and orderly development

1. The guiding ideology of stimulating the audiovisual industry’s healthy and orderly development is: holding high the banner of socialism with Chinese characteristics, taking Deng Xiaoping theory and the important “Three Represents” thought as guidance, fully implementing scientific development views, and according to the general needs of holding high the banner, revolving around the whole situation, serving the people and reform and renew liberate thought, seek the truth from facts, go forward with the times, fully moving forward system and organization renewal, putting forth effort to resolve deep-level contradictions and problems restricting audiovisual industry development, making effort to stimulate the audiovisual industry’s healthy and orderly development, promoting the development and prospering of socialist culture.

2. The principle needs of promoting the audiovisual industry’s healthy and orderly development are: persisting in the advancing orientation of advanced socialist culture, persisting in the correct publication orientation, placing social benefit first, making effort to realize unification of social benefit and economic benefit, persisting in deepening reforming and renewing systems and organizations, remoulding the main body of the market, perfecting market systems; persisting in, with capital as link,  integrating market functioning and administrative guidance, moving forward capital reorganization,  optimizing industrial structure, transform the development manner, raise our country’s audiovisual industry’s domestic and foreign competitive power and influence through strengthening and making excellent a number of, integrate and reorganize a number of, closing down and withdrawing a number of audiovisual enterprises; persisting in grasping prospering with one hand, grasping management with one hand, through strengthening management, provide a desirable environment for reform and development.

II, Deepening reform adjusting structure, strengthening the vigour of the audiovisual industry’s healthy and orderly development

3. Vigorously and reliably moving forward audiovisual publishing work unit enterprise and system reform. Apart from audiovisual publication work units clearly for public interest, local and colleges and universities’ subordinate audiovisual work units must by the end of 2009 have completely finished enterprise and system reform, all central entities and work units’ subordinate publication work unit must by the end of 2010 have completely finished enterprise and system reform. Book publishers’ subordinate audiovisual work units and book publishers must complete enterprise and system reform with the others. Already reformed audiovisual publication work units must, according to the demands of the “Company Law”, speed up production rights system reform, complete the legal person administration structure, establish modern enterprise systems, and turn into true main market parts.

4. Strengthening and making outstanding a number of audiovisual enterprises. According to the principles of superiority helps each other, voluntary partnerships, on the basis of market deployment resources, through macroeconomic regulation means, entities and work units possessing many audiovisual enterprises are encourage to partner their resources, establish audiovisual group companies; all sorts of audiovisual enterprises with similar work and common resources are encouraged to establish audiovisual group companies across sectors, across regions and across entities. Within three years, 3 to 5 relatively large-scale comprehensive audiovisual group companies and 10 to 20 special and distinctive specialized audiovisual companies should be fostered.

5. Integrating and reorganizing a number of audiovisual enterprises. Conducting capital integration between audiovisual publication and areas such as book publication, periodicals publication, network publication, etc., is to be vigorously moved forwards; large-scale state-owned newspaper and periodical groups, publication groups, printing groups, distribution groups etc., are encouraged and supported to, with capital as link, merge and reorganize the current audiovisual publication, production, duplication and distribution enterprises; large-scale state-owned enterprises are encouraged and supported to participate in audiovisual enterprises’ stock holding system transformation.

6. Closing down and withdrawing a number of audiovisual enterprises. Those not fulfilling market entry conditions, or those not willing to reform enterprise and system, will be closed down; those not conforming to annual check-up conditions in aspects such as personnel, capital, equipment, premises, etc., will be cancelled; those that in cleaning up and reorganizing display activities gravely illegal or violating regulations, will be revoked according to the law.

7. Audiovisual publication work units are encouraged to cooperate with social capital in technological and personnel aspects, through strengthening management and standardizing operations, lead non-publicly owned capital in many kinds of ways into audiovisual publication areas permitted by policy. State-owned audiovisual publication work units are encouraged to cooperate with non-state-owned enterprises in conducting many forms of cooperation, under the prerequisite of guaranteeing correct orientation and the state-owned being dominant.

III, Overall planning, vigorous renewal, providing policy guarantees for the audiovisual industry’s healthy and orderly development

8, Audiovisual industry long-term development planning will be formulated, structure and deployment adjustment will be speeded up, industry concentration will be raised, industrial upgrading must be moved forward; individual innovation will be intensified, in focal areas such as intellectual property rights protection, new industry attitude cultivation, high-tech engineering etc., breakthroughs will be obtained, stimulating steady industry growth.

9, Using the market system, concentrating superior resources, regions with high industry concentration such as Beijing, Shanghai, Guangdong, etc., are encouraged to establish music creation industry bases (territories), to stimulate ethnic music product development, creation ad well as connected industry development.

10. Domestically produced audiovisual product development and production is encouraged. Supporting 50 audiovisual publication and production enterprises having relatively strong innovative power is stressed, every two years, 100 excellent originally created audiovisual products will be chosen and awarded; the support dynamic of public benefit audiovisual products will be enlarged, the publication, duplication and distribution work of audiovisual products catering to aspects such as the “three rurals”, minors and ethnic minority regions, etc. will be supported.

11. Audiovisual enterprises vigorously supporting and using new media is encouraged and supported, transformation towards digitalization will be strengthened, cooperation with communication operation businesses, network operation businesses and hardware manufacturing businesses will be comprehensively conducted, many sorts of audiovisual publication and distribution forms using carriers such as the Internet, mobile telephones, television, mobile hard drives, databases, electronic reading viewers, integrated circuit cards, etc., will be expanded, new business attitudes will be energetically developed.

12.Audiovisual product sale channels will be broadened, on a basis of fully developing the function of traditional channels such as Xinhua bookstores, etc, the focus will be on supporting  the establishment of having a large-scale chain nature audiovisual sale channel, realizing the chain-formation of audiovisual sales of supermarkets or convenience stores, large-scale department stores, petrol stations, airports, hotels, tourist spots, newspaper kiosks, etc., integrating distribution and delivery, integrating management.

13. Domestically produced audiovisual products’ “marching out” project will be vigorously implemented. Audiovisual enterprises meeting conditions are encouraged and supported to “march out”, using exclusive investment, joint investment and cooperation means, Chinese and international audiovisual electronic exhibitions will be organized, domestic enterprises will be subsidized to take part in influential international audiovisual expos, the “Audiovisual Products Export Reward Rules’ will be formulated, each year, 100 “marching out” audiovisual products and 20 audiovisual enterprises making exceptional contributions in the field of “marching out” will be rewarded.

14. Audiovisual industry’s creative planning personnel, specialist technical personnel, enterprise management personnel and market sale personnel resources development and training will be strengthened; through means such as developing specialist training, international exchange, attracting from abroad, with corresponding institutes jointly establishing specialist and personnel training bases, etc., efforts will be made to bring up a large number of all sorts of excellent personnel urgently needed by the sector.

15. On the basis of implementing already exiting preferential policies supporting reform and sector development, the dynamics of vigorously striving from relevant entities toe enlarge support for audiovisual sector development, and more favourable policies will be granted in finance and taxation aspects.

4, Strengthening management, perfecting the system, create a desirable environment for the audiovisual industry’s healthy and orderly development

16. Audiovisual Publication work units must strictly implement an on-the-job training system, an editorial responsibility system, a strictly reporting selected topics and major topics for filing and imported audiovisual products reporting and specimen submission system, standard publication number, duplication entrustment letter  application and bar code use procedures, realistically bear responsibility for all publication links, guarantee that audiovisual product content and publication procedures conform to provisions of laws and regulations,

17. The duplication work unit must strictly enforce the duplication entrustment letter’s management system and SID code system, realistically perform duplication letter examination and filing procedures, within two years of duplication, must keep materials such as the duplication entrustment letter, the duplication entrustment contract and audiovisual product specimens, etc.; and may not duplicate compact discs in advance of receiving the duplication entrustment letter, may not use copied, faxed or altered duplication entrustment letters, they are strictly prohibited activities of duplicating entrustment between work units; they are strictly prohibited to use duplicate compact discs without SID-code or having an SID-code not issued by administrative entities.

18. Audiovisual distribution work units must strictly lock up stock, and may not buy stock from illegal publication or distribution channels, may not take part in “sale of publication numbers” activities; before sale of audiovisual publications, business units entering into the publications wholesale market, must submit  a specimen of the publication to the wholesale market management organ of examination, the wholesale market management organ must establish filing for future reference.

19. Towards audiovisual publication, production, duplication and distribution enterprises violating laws and regulations, a liability investigation system will be implemented, the administrative Press and Publications entities will according to law impose administrative punishments such as  warnings, confiscation of unlawfully handled audiovisual products and unlawful gains,  fines, closing business for rectification, cancelling permits, etc.; of those enterprises of which permits are cancelled, legal representative or main person in charge may not undertake the position of lawful representative or main person in charge of an audiovisual publication, duplication or distribution enterprise within 10 years of cancellation of permits. Where corresponding responsible persons have committed a crime, it will be transferred to judicial authorities according to law, and investigated for criminal liability.

20. The controlling and sponsoring work unit of an audiovisual publication work units must earnestly carry out its duties, supervising that the publication work unit complies with the Party line, guiding principles and policies and State laws, regulations as well as administrative policies and guidelines, strictly examine the important selected topic planning of the publishing work units, carry responsibility for the major matters concerning the publication work units; controlling and sponsoring work units must undertake leadership responsibility concerning grave errors and other major problems in aspects such as publication content, etc., of their subordinate publication work units, and the administrative government controlling entity will put foreyard a recommendation for investigation with its higher-level work unit or entity.

21. All levels’ administrative press and publication entities must according to law, strengthen oversight of audiovisual publication, management, duplication and distribution enterprises, earnestly perform yearly inspection work, establish and perfect complete and comprehensive management systems; administrative press and publications entities work personnel using work privileges and work influence to accept property or other benefits from other persons, and allow the establishment of audiovisual publication, production, duplication and distribution enterprises not meeting conditions, will be administratively punished according to law; where it constitutes a crime, it will be transferred to judicial authorities according to law, and investigated for criminal liability.

22. Audiovisual industry groups must initiate audiovisual enterprises’ strengthening of social responsibility since, establish and perfect industry self-management and self-regulation systems, develop government and enterprises bridging and linking functions, according to law, protect the lawful rights and interests of society and public and those in business.

23. Persisting in “grasping sector development in one hand, grasping sector atmosphere establishment in one hand, stimulating the audiovisual industry’s healthy and orderly development and moving forward the establishment of sector atmosphere will be organically integrated, anti-corruption and pro-honesty and sincerity systems establishment will be realistically strengthened, a “doing business according to law, lawbreakers must be dealt with, fair trading, honest promises” market environment will be vigorously constructed.

24. The revision work of regulations and rules such as the “Audiovisual Product Management Regulations” and “Audiovisual Product Publication Management Regulations”, “Audiovisual Product Production Management Regulations”,” Duplication Management Rules” “Audiovisual Product Wholesale, Retail and Rental Management Rules”, “Audiovisual Products Import Management Rules” “Sino-Foreign Coproduced Audiovisual Products Retail Enterprises Management Rules”, etc. will be speeded up, to provide legal guarantees for the audiovisual sector’s development.

25. Infringing and pirating activities will be gravely attacked. Copyright enforcement and social supervision will be further strengthened, special operations attacking infringement and piracy will be continuously launched, the anti-pricy reporting and investigation reward system will be perfected, attack dynamics concerning activities of illegal network downloading and faking all sorts of infringing and pirated audiovisual products produced by publishing work units will be enlarged, the revision work of the “Copyright Law” will be vigorously stimulated, to realistically protect the lawful rights and interests of copyright holders.

26: The “Sweeping pornography and striking illegality” fight will be developed more deeply and lastingly, Administrative and judicial means will be used to enlarge the attack dynamics against activities of illegal publication and sale of audiovisual products, the localities are prohibited from protection, and the law will be strictly enforced, to guarantee the audiovisual sector’s healthy and ordered development.

20 July 2009

关于促进我国音像业健康有序发展的若干意见
新出政发〔2009〕5号

中央和国家机关各部委、各民主党派、各人民团体新闻出版主管部门，各省、自治区、直辖市新闻出版局，新疆生产建设兵团新闻出版局，解放军总政治部宣传部新闻出版局，中国出版集团公司：
改革开放以来，我国音像业进入了一个新的发展时期，出版了一大批传播先进文化、具有重要文化积累价值、深受人民群众欢迎的优秀音像制品，形成了音像出版、制作、复制、进口、批发、零售、出租等较为完备的产业体系，在服务党和国家工作大局、普及科学文化知识、满足人民群众日益增长的精神文化需求、促进我国社会主义文化的繁荣发展等方面做出了重要贡献。
但是，近年来我国音像业改革、发展和管理方面的问题也日益突出。音像业体制改革相对滞后，产业结构和布局不合理；产业转型缓慢，新业态尚未形成；原创能力萎缩，一些音像出版单位“空壳化”现象严重；少数出版、制作、复制、发行企业违法违规经营，使得含有低俗甚至色情内容的音像制品流入市场；一些主管主办单位放弃管理职责，少数行政管理部门监管不力；盗版和网络非法下载严重，市场管理亟待加强。为了进一步推进新闻出版体制改革，促进音像业健康有序发展，现提出若干意见如下。
一、促进我国音像业健康有序发展的指导思想和原则要求
1.促进音像业健康有序发展的指导思想是：高举中国特色社会主义伟大旗帜，以邓小平理论和“三个代表”重要思想为指导，全面贯彻落实科学发展观，按照高举旗帜、围绕大局、服务人民、改革创新的总要求，解放思想、实事求是、与时俱进，全面推进体制机制创新，着力解决制约音像业发展的深层次矛盾和问题，努力促进音像业健康有序发展，推动社会主义文化的发展繁荣。
2.促进音像业健康有序发展的原则要求是：坚持社会主义先进文化的前进方向，坚持正确的出版导向，把社会效益放在首位，努力实现社会效益和经济效益的统一；坚持深化改革，创新体制机制，重塑市场主体，完善市场体系；坚持以资本为纽带，市场运作与行政引导相结合，推进资源重组，通过做强做优一批、整合重组一批、停办退出一批音像企业，优化产业结构，转变发展方式，提高我国音像业在国内外的竞争力和影响力；坚持一手抓繁荣、一手抓管理，通过加强管理，为改革、发展提供良好的环境。
二、深化改革，调整结构，增强音像业健康有序发展的活力
3.积极稳妥推进音像出版单位转企改制。除明确为公益性的音像出版单位外，地方和高等院校所属音像出版单位必须在2009年底前全部完成转企改制，中央各部门各单位所属音像出版单位必须在2010年底前全部完成转企改制。图书出版社所属的音像出版单位与图书出版社一并完成转企改制。已转企改制的音像出版单位要按照《公司法》的要求，加快产权制度改革，完善法人治理结构，建立现代企业制度，成为真正的市场主体。
4.做强做优一批音像企业。按照优势互补、自愿组合的原则，以市场配置资源为基础，通过宏观调控手段，鼓励拥有多家音像企业的部门和单位整合资源，组建音像集团公司；鼓励业务相近、资源相通的各类音像企业，跨行业、跨地区、跨部门组建音像集团公司。在3年内培育出3至5家规模较大的综合性音像集团公司和10至20家特色鲜明的专业性音像公司。
5.整合重组一批音像企业。积极推动音像出版与图书出版、报刊出版、网络出版等领域进行资源整合；鼓励和支持大型国有报刊集团、出版集团、印刷集团、发行集团等以资本为纽带，兼并重组现有音像出版、制作、复制、发行企业；鼓励和支持国有大型企业参与音像企业的股份制改造。
6.停办退出一批音像企业。对不具备市场准入条件、改革中不愿转企改制的予以停办；对在人员、资金、设备、场所等方面已不符合年度核验条件的予以注销；对在清理整顿中发现有严重违法违规行为的依法予以吊销。
7.鼓励音像出版单位在技术、人才方面与社会资本合作，通过加强管理、规范运作，引导非公有资本以多种形式进入政策许可的音像出版领域。鼓励国有音像出版单位在确保导向正确和国有控股的前提下，与非国有企业进行多种形式的合作。
三、统筹规划，积极创新，为音像业健康有序发展提供政策保障
8.制定音像业中长期发展规划，加快结构布局调整，提高产业集中度，推动产业升级；强化自主创新，在知识产权保护、新型业态培育、高新技术运用等重点领域取得突破，促进产业稳步增长。
9.运用市场机制，集中优势资源，鼓励和推动北京、上海、广东等产业集中度高的地区建立音乐创意产业基地（园区），促进民族音乐产品的开发、创作以及关联产业的发展。
10.鼓励国产音像制品的开发和生产。重点扶持50家具有较强创新能力的音像出版、制作企业，每两年评选奖励100部优秀原创音像作品；加大对公益性音像制品的扶持力度，支持面向“三农”、未成年人和少数民族地区等方面的音像制品出版、复制、发行工作。
11.鼓励和支持音像企业积极依托和运用新媒体，加快向数字化转型，与通信运营商、网络运营商及硬件制造商进行全方位的合作，拓展以互联网、手机、电视、移动硬盘、数据库、电子阅读器、集成电路卡等为载体的多种音像出版发行形式，大力发展新业态。
12.拓宽音像制品销售渠道，在充分发挥新华书店等传统渠道作用的基础上，重点支持具有大型连锁性质的音像销售渠道建设，实现超市或便利店、大型综合商场、加油站、机场、饭店、旅游点、报刊亭等音像销售的连锁化，统一配送，统一管理。
13.积极实施国产音像制品“走出去”工程。鼓励和支持有条件的音像企业以独资、合资或合作的方式“走出去”；办好中国国际音像电子博览会，资助国内企业参加有影响的国际音像展会；制订《音像制品出口奖励办法》，每年奖励100部“走出去”音像制品和20家在“走出去”方面有突出贡献的音像企业。
14.加强音像业创意策划人才、专业技术人才、企业经营管理人才和市场营销人才资源的开发和培养；通过开展专业培训、国际交流、从海外引进、与相关院校共建特色专业和人才培养基地等方式，努力造就一大批行业急需的各类优秀人才。
15.在落实已有支持改革和产业发展优惠政策的基础上，积极争取有关部门加大支持音像业发展的力度，在财政税收方面给予更优惠的政策。
四、加强管理，健全制度，为音像业健康有序发展创造良好环境
16.音像出版单位要严格落实岗位培训制度、编辑责任制度，严格选题报送、重大选题备案、进口音像制品报审和样本缴送制度，规范版号、复制委托书申领和条形码使用程序，切实对出版各个环节负起责任，保证音像制品的内容和出版程序符合法律法规的规定。
17.复制单位要严格执行复制委托书使用管理制度和SID码制度，切实履行复制委托书的审核和备案程序，自复制之日起2年内，须保存复制委托书、委托复制合同和音像制品样本等资料；不得在接受复制委托书前先行复制光盘，不得使用复印、传真或经涂改的复制委托书；严禁复制单位之间的转委托行为；严禁使用无SID码或未经行政部门核发的SID码模具复制光盘。
18.音像发行单位要严把进货关，不得从非法的出版或发行渠道进货，不得参与“买卖版号”活动；进入出版物批发市场的经营单位在出版物销售前，须将出版物样本报送批发市场管理机构审验，批发市场管理机构要建立档案备查。
19.对违规违法的音像出版、制作、复制和发行企业，实行责任追究制，由新闻出版行政部门依法给予警告、没收违法经营的音像制品和违法所得、罚款、停业整顿、吊销许可证等行政处罚；企业被处以吊销许可证的，其法定代表人或主要负责人自许可证被吊销之日起10年内不得担任音像制品出版、复制、发行企业的法定代表人或主要负责人。相关责任人构成犯罪的，移交司法机关依法追究刑事责任。
20.音像出版单位的主管主办单位要认真履行职责，监督出版单位遵照党的路线、方针、政策和国家的法律、法规以及办社方针、宗旨，严格审核出版单位的重要选题计划，对出版单位的重大事项负起责任；主管主办单位对所属音像出版单位在出版物内容等方面发生严重错误和其他重大问题，要承担领导责任，由政府行政主管部门向其上级单位部门提出追究行政责任的建议。
21.各级新闻出版行政部门要依法加强对音像出版、制作、复制和发行企业的监管，认真做好年度核验工作，建立健全完善的配套管理制度；新闻出版行政部门工作人员利用职务便利和职务影响收受他人财物或其他好处，批准设立不符合条件的音像出版、制作、复制、发行企业，或不履行监督职责，或发现违法行为不予查处，造成严重后果的，依法给予行政处分；构成犯罪的，移交司法机关依法追究刑事责任。
22.音像行业组织要倡导音像企业增强社会责任感，建立健全行业自我管理和自律机制，发挥政府与企业的桥梁纽带作用，依法保护社会公众和经营者的合法权益。
23.坚持“一手抓行业发展，一手抓行风建设”，把促进音像业健康有序发展与推动行风建设有机结合起来，切实加强反腐倡廉和诚信体系建设，积极营造“依法经营、违法必究、公平交易、诚实守信”的市场环境。
24.加快对《音像制品管理条例》及《音像制品出版管理规定》、《音像制品制作管理规定》、《复制管理办法》、《音像制品批发、零售和出租管理办法》、《音像制品进口管理办法》、《中外合作音像制品分销企业管理办法》等法规、规章的修订工作，为音像业的发展提供法制保障。
25.严厉打击侵权盗版活动。进一步加强版权执法和社会监管，持续开展打击侵权盗版专项行动，完善反盗版举报和查处奖励机制，加大对网络非法下载、假冒出版单位制作的各类侵权盗版音像制品行为的打击力度，积极促进《著作权法》的修订工作，切实保护著作权人的合法权益。
26.深入持久地开展“扫黄打非”斗争。运用行政和司法手段，加大对非法出版、制售音像制品行为的打击力度，严禁地方保护，严格执法，加强监管，保障音像业健康有序发展。
二○○九年七月二十日