Guiding Opinions Concerning Accelerating the Development of Publishing Media Group Reform

XCZF No. (2012)3

All provincial, autonomous region and municipal press and publications bureaus, the Xinjiang Production-Construction Corps Press and Publications Bureau, the Liberation Army General Political Department Propaganda Department Press and Publications Bureau, all Central and State organs, ministries and commissions, all democratic parties, all people’s organizations’ press and publications controlling departments:

In order to realistically implement the spirit of the 6th Plenum of the 17th Party Congress, fully give rein to the guiding function of publishing media groups in press and publications reform and development, according to the requirements of the “National ’12th Five-Year Plan’ Period Culture Reform and Development Plan Outline” and the “Press and Publications Sector ’12th Five-Year Plan’ Period Development plan”, hereby, the following opinions on accelerating publishing media group reform and development are put forward.

I, Fully understanding the importance and urgency of accelerating publishing media group reform and development

1. Since the 16th Party Congress, the press and publications sector has vigorously, reliably and orderly launched the transformation of commercial press and publications work units into enterprises according to the distribution and requirements of the Centre, accelerated resource integration and structural adjustment, and formed a batch of publishing media groups. During the “11th Five-Year Plan”, publishing media groups incessantly deepened reform, accelerated development and published a large batch of excellent works, which satisfied the spiritual culture needs of the popular masses relatively well; a batch of publishing media groups completed enterprise system reform, and have established the beginnings of modern enterprise systems; a batch of publishing media groups successively realized shareholding system reform and went on the financial markets, and grew into strategic investors in the cultural industries; a batch of publishing media groups accelerated the pace of “marching out”, and made important contributions to Chinese culture marching towards the world. At the same time publishing media groups’ industry scope incessantly expanded, development quality incessantly rose, their level and function in the press and publications sector became more prominent every day, and they became the principal force of press and publications reform and development.

2. Facing the requirements put forward by the Centre concerning cultural reform and development, facing the new expectations of the popular masses of spiritual and cultural products, facing the new mission of constructing a strong press and publications country, facing the new challenges brought on by new technology, many frictions still exist in publishing media group reform and development, which are mainly manifested in: systems are not smooth, mechanisms are not lively, development vitality is not strong; the level of intensification is low, development is homogenized, market competition is not strong, the level of integration with science and technology is low, transformation and upgrades are sluggish, innovation capacity is not strong, high-level talents are lacking, business management capacity is not strong. At the same time, regions and sectors are blocked, the structure of distribution and publishing resource allocation is not rational, honesty systems are not complete and other problems, restrict the reform and development of publishing media groups.

3. Persisting in the development path of Socialist culture with Chinese characteristics, striving to construct a strong socialist culture country, the press and publications sector undertakes a major historical responsibility. Publishing media groups act as the vanguard of press and publications structural reform, the principal force of press and publications industry development, and gives rein to an important function in guiding the progressive direction of Socialist culture, constructing the Socialist core value system, disseminating knowledge and inheriting civilization, and safeguarding national cultural security. Accelerating publishing media group reform and development is an urgent task for developing public interest-type cultural undertakings, guaranteeing the people’s basic cultural rights and interests, and satisfying the people’s daily increasing spiritual cultural needs; is an urgent task for accelerating the development of the press and publications sector, promoting cultural industries in becoming a pillar industry in the national economy, and serving the larger picture of national economic and social development; is an urgent task for accelerating the transformation of press and publications sector development methods, adjusting industry structures and strengthening overall strength; and is an urgent demand for strengthening the domestic cohesion of advanced Socialist culture, its foreign influence, promoting Chinese culture to “march out” and raising national soft power.

II, Guiding ideology, principal requirements and main objectives of accelerating publishing media group reform and development

4. The guiding ideology for accelerating publishing media group reform and development is: deeply studying and implementing the spirit of the 6th Plenum of the 17th Party Congress, with Deng Xiaoping Theory and the important “Three Represents” thought as guidance, persisting in implementing the scientific development view, according to the general requirements of holding high the banner, revolving around the larger picture, serving the people, reform and innovation, with scientific development as the main theme, with transforming development methods as main line, with deepening reform as driver, with scientific an technological progress and indigenous innovations as support, with reform, reorganization, transformation and strengthening management as main direction of attack, further integrating resources and optimizing structures, building mechanisms and systems full of vitality, rich in efficiency, with even more openness, benefiting scientific publishing media group development, liberating and developing press and publication productive forces, promoting publishing media group reform and development to obtain new breakthroughs.

5. The principal requirements of accelerating publishing media group reform and development are: persisting in the progressive orientation of advanced Socialist culture, completely implementing the “Two Fors” orientation and the “Two Hundreds” policy, forcefully moving the construction of the Socialist core value system forward; persisting in putting social interest first, persisting in the organic integration of social interest and economic interest; persisting in integrating government guidance and market adjustment, fully giving rein to the vigorous function of markets in allocating resources, persisting in developing press and publications core business, and concurrently diversifying operations; persisting in utilizing both international and domestic markets and resources, striving to strengthen the influence and propagation strength of Chinese culture abroad; persisting in the coordinated development of press and publications undertakings and press and publications industries, raising publishing media group provision of public culture services and promoting cultural industry development capacity; persisting in supporting the superior and supporting the strong, striving to forge international first-rate publishing media groups.

6. The main objectives of accelerating publishing media group reform and development are: striving to build new cultural product production and creation mechanisms, presenting even more excellent masterpieces having a clear mind about history, having a clear mind about the times and having a clear mind about people; striving to conduct enterprise system transformation, establishing modern enterprise systems; striving to move cultural science and technology innovation forward, realizing transformation and upgrading of publishing media groups; striving to strengthen management, arousing publishing media group development vitality; striving to promote joint reorganization, doing away with regional blockades and sector barriers, realizing publishing media groups to develop across media, across regions, across sectors, across ownership systems, and across national boundaries; striving to promote publishing media groups to “march out”, and raise the international influence of Chinese culture. By the end of the “12th Five-Year Plan” period, further strengthening and optimizing three large publishing media groups in humanities, education, and science and technology, fostering large-scale backbone publishing media groups with an annual sales income exceeding 20 billion; promoting mergers and reorganizations of the Xinhua bookstores across regions, forming nationwide state-owned large scale distribution groups; basically shaping publishing media groups with strong core competitiveness, eminent core business, prominent brands and scientific management; basically forming a new structure with rational distribution between Eastern, Central and Western regions, with mutual support and cooperation between the superiorities of the Centre and the localities, book publishing and newspaper or periodical publishing, single media and multimedia, comprehensive forms and specialist forms, large-scale groups and special, excellent, expert and new categories of press media enterprises.

III, Further deepening publishing media group structural reform

7. Perfecting legal person governance structures. Guiding and promoting publishing media groups to realistically standardize systems, and raise enterprises’ market competitiveness through effective systemic arrangements. Completing board of directors, board of supervisors and commercial management levels, exploring the establishment of professional manager systems, clarifying the duties of owners and managers, shaping asset organization forms and commercial management models conforming to the requirements of modern enterprise systems and reflecting the characteristics of cultural enterprises.

8. Moving shareholding system reform forward. Guiding and promoting a batch of publishing media groups meeting conditions to conducting shareholding reform, leading other sectors’ large scale State-owned enterprises to act as strategic investors, and permitting them non-publicly owned capital to enter into scopes permitted by State policy; encouraging publishing media groups to conduct shareholding reform between them through joint reorganization, share participation, etc. realizing shareholding right diversification.

9. Transforming internal operational mechanisms. According to market rules and press and publications development rules, promoting mgs to continue to deepen internal reform with labour, human resources and distribution systems at the core. Establishing perfect enterprise staff evaluation systems and encouragement systems, designing rational salary systems, encouraging intelligence, copyright, technology and other production factors to participate in profit distribution.

10. Guiding and standardizing State-owned publishing media groups to cooperate with non-publicly owned cultural enterprises. Guiding and standardizing State-owned publishing media groups to launch product cooperation, programme cooperation and asset cooperation with non-publicly owned cultural enterprises; permitting State-owned mgs to introduce non-public cultural enterprises with qualifications to participate in publishing activities as one department of a State owned publishing media group; permitting publishing media groups to control or participate in non-public cultural enterprises with relatively good growth prospects, and realize cross-ownership development.

IV, Vigorously moving strategic publishing media group reorganization forward

11. Supporting publishing media groups to merge and reorganize. Encouraging publishing media groups to integrate newspaper, periodical, book, audiovisual product, electronic publication, digital publishing businesses and publishing, printing, reproduction, distribution and other resources, realize multimedia and complete industry chain development; encouraging publishing media groups to conduct mergers and reorganizations with central and local publishing enterprises that have closely relate business and common resources, and realize cross-regional development; encouraging publishing media groups to merge and reorganize with other State-owned enterprises outside the press and publications area, and realize cross-sector development. Supporting specialized publishing media groups with outstanding core businesses and superior brands to walk the path of characteristic operations. Encouraging and supporting press and publications enterprises transforming into enterprises to voluntarily enter all sorts of publishing media groups.

12. Supporting publishing media groups to conduct strategic cooperation between them. Supporting publishing media groups to adopt measures such as joint research and development, resource sharing, joint platform construction, cooperative operations, etc., to conduct strategic operations; supporting publishing media groups to implement cross-region operations through methods such as setting up branch organs or chain businesses in different localities, conducting programme, product and asset cooperation with similar kinds of enterprises, etc.; supporting publishing media groups to launch strategic cooperation with large-scale enterprises in radio and television,  telecommunications, etc.

13. Promoting publishing media groups to transform their development method. Guiding and promoting publishing media groups to formulate scientific strategic plans, adjust industry structures, transform business thinking, transform from mainly relying on the domestic market and domestic resources to relying on both domestic and international markets and both resources, transform from mainly relying on single publishing business models to relying on diversified services with publishing operations at the core, transform from mainly relying on traditional publishing business models to relying on the organic integration of traditional publishing business models with burgeoning publishing business models, and transform from mainly relying on resource expansion to mainly relying on scientific and technological progress, cultural  innovation and raising the quality of workers, realizing both good and rapid development

V, Forcefully supporting publishing media groups to apply high and new technology and promote industrial upgrading

14. Supporting publishing media groups to apply high and new technology. Supporting publishing media groups to strengthen core technology, key technology and shared technology assaults, strengthening digital content processing, storage, transmission, reading and other high and new technology and equipment application, accelerating the transformation of new science and technology achievements, incessantly raising press and publications technology equipment levels; supporting mgs to indigenously research, develop and import or attract high and new technology, utilizing high and new technology to transform and upgrade traditional production methods, production processes and infrastructure; promoting publishing media groups to accelerate the realization of the digitization of stored publishing resources, forge digital dissemination technologies and resource databases containing many kind of publishing resources, conducting comprehensive and deep-layered exploitation and use of content resources; encouraging the exploitation of applied Internet, material networks and cloud computing technology, building open-style, comprehensive and multifunctional concentrated circulation and communication platforms; supporting publishing media groups and large-scale electronic commerce enterprises to conduct strategic cooperation and resource integration, building modern publications circulation systems integrating online circulation and offline circulation.

15. Supporting publishing media groups to develop digital publishing industries. Supporting publishing media groups to implement digitization strategies, accelerating the development of audio reading materials electronic books, electronic schoolbags, digital newspaper, excellent digital academic journal databases, etc.; supporting publishing media groups to develop new publishing business models with network publishing, mobile telephone publishing and cloud publishing as representatives; fostering a batch of new publishing media groups with digitization in the lead, and comprehensive media operation as characteristic, accelerating the establishment of market subjects adapted to digital publishing industry development; supporting publishing media groups to vigorously explore new digital publishing industry development paths.

16. Supporting publishing media groups to establish science and technology innovation systems. Encouraging and guiding enterprise capital and social capital to invest in technology transformation, shaping new product research and development and new technology innovation mechanisms facing the market; encouraging the establishment of science and technology work strategy plans, establishing research and development departments, perfecting scientific research systems, expanding scientific research funding and input; supporting the launching of standardized work, promoting enterprise standards to become sector standards, national standards and international standards

VI, Realistically strengthening publishing media groups’ scientific management

17. Strengthening publications product content creation and production guidance. Publishing media groups must base themselves on advanced culture, and make providing even better and even more spiritual nourishment as their main task, must persist in the correct publishing orientation, make abiding by the progressive direction of advanced Socialist culture and satisfying the popular masses into the highest standards for appraising publishing products, and shape scientific appraisal mechanisms with mass appraisal, expert appraisal and market testing.

18. Completing internal management mechanisms. With clarifying scopes, standardizing procedures, strengthening supervision and responsibility investigation as focus points, establishing and completing major publishing media group policy decisions, important personnel appointment and dismissal, major programme arrangement as well as large quota operation matters’ “three majors and one large” policy decisions, implementation and supervision systems. Promoting internal enterprise management and innovation, strengthening quality management and cost accounting, shaping effective incentive and constraint mechanisms. Strengthening ideology and politics construction within leadership ranks, strengthening political acuteness and political differentiation, building strong ideological defence lines, guaranteeing the correct orientation. Fully giving rein to the political core function of Party organizations. Promoting enterprises to strengthen their own brand construction, internal cultural construction, incessantly raising enterprise cohesion, raising comprehensive images of enterprises, and shaping operational concepts and development models reflecting the characteristics of cultural enterprises.

19. Scientifically integrating internal resources. Promoting publishing media groups to optimize industrial structures, strengthen core business and expand main bodies, raising core competitiveness; promoting publishing media groups to integrate with similar kinds of business, upstream or downstream business, rationally distribute industry chains, product chains, raising resource concentration strength and comprehensive effect; promoting publishing media groups to revolve around their core business and develop corresponding cultural industries, extend industry chains, and shape new growth points; promoting publishing media groups to establish management and control models and organizational structures with mutually suited operation integration and marketized operations, raising management efficacy; promoting publishing media groups to, after mergers and reorganizations, implement effective integration and shape comprehensive competitive superiority in aspects such as development strategy, management, branding, business, corporate culture, etc.

20. Establishing and completing publishing media group editorial board systems. Supporting publishing media groups to strengthen quality management, brand management and copyright management over content resources through establishing and completing editorial boards; supporting publishing media groups to strengthen orderly exploitation of content resources, shaping top quality products having characteristics; supporting publishing media groups to strengthen theme planning, content innovation, product design and market operation management coordination over their subordinate publishing organs, striving to create and produce originally-created excellent publication products unifying high content and form.

21. Strengthening human resource planning and exploitation. Guiding and promoting publishing media groups to innovate talent incentive mechanisms, completing talent selection mechanisms, establishing complete training systems, adopting many kinds of methods such as open application, directed special training, attraction from outside the industry, etc. to foster, attract and concentrate a batch of specialist technology talents and comprehensive high-level operational management talents; supporting publishing media groups to foster a line of personnel teams with complete categories, rational structures, clear phases and excellent quality.

VII, Encouraging and supporting publishing media groups to “march out”

22. Supporting publishing media groups to raise brand competitiveness. Supporting publishing media groups to deeply excavate ethnic cultural resources, utilize cultural representation forms conform to the characteristics of the times, organically integrating traditional factors and modern factors, organically unifying ethnic characteristics and global trends, producing even more publishing products with indigenous intellectual property rights and international competitiveness, fostering a batch of internationally famous brands.

23. Supporting publishing media groups to adopt many sorts of methods to “march out”. Supporting publishing media groups to expand copyright export to focus countries and regions; supporting traditional publishing products with competitiveness and many sorts and forms of digital publishing products to enter into international markets; supporting publishing media groups having strength to merge with or purchase foreign superior publishing enterprises with long-term perspectives; supporting publishing media groups meeting conditions to go abroad to establish publishers or stations, organize newspapers and magazines, opening plants and stores through exclusive investment, joint venture, cooperation and other methods; supporting publishing media groups to participate in establishing Taiwan Straits publishing exchange trial regions, conducting advance trials in Taiwan Straits publishing exchange and cooperation, promoting the joint flourishing and development of the Taiwan Straits press and publishing sector.

24. Supporting publishing media groups to expand international dissemination channels. Supporting publishing media groups to raise the influence of Chinese publishing products at the international level through participating in domestic and foreign focus cultural exhibitions and activities having international influence; encouraging publishing media groups to strengthen cooperation with global and regional large-scale retail bookstores, further expanding international mainstream retail channels, expanding network bookstores, online reading materials and other burgeoning publications retail channels, integrating overseas Chinese language publications retail channels, building Chinese publication products’ international solid retail networks and international trade platforms.

VIII, Guarantee measures for accelerating publishing media group reform and development

Further rationalizing management systems. Rationalizing sector management and resource management relationships, shaping a structure with unified Party Committee leadership, Party and government grasping jointly and managing together, Party Committee propaganda departments organizing and coordinating , administrative controlling department managing according to the law and enterprises operating in their own manner. Administrative press and publications management departments must be take up responsibilities for planning, guiding, coordinating, serving and management concerning publishing media group reform. They must strictly implement cultural asset, cultural enterprise, and cultural product market access and exit policies, comprehensively utilize legal, administrative, economic, scientific, technological or other methods to raise management effectiveness. They must realistically strengthen anti-corruption and pro-honesty construction in publishing media group reform and development, strictly implement Party style and clean government construction responsibility systems, and promote the perfection and implementation of regulations related to State-owned enterprises’ leading persons doing business cleanly.

26. Formulating and implementing policies shifting publishing resources towards publishing media groups. Supporting publishing media groups with mature conditions to establish subsidiaries having publishing rights across sectors and regions; giving publishing resource allocation preferences to publishing media groups with cross-regional and foreign-oriented operations; non-publicly owned culture organs facing overseas market may independently dispose of publishing resources after approval.

27. Expanding support strength to publishing media groups’ major programmes. Accelerating the pace of press and publications reform and development programme database construction, guiding and driving publishing media group reform and development; supporting and encouraging publishing media groups’ vigorously planning and implementing of major industry programmes, bringing  major programmes implemented by publishing media groups on indigenous innovation, transformation and upgrading into press and publications reform and development programme databases and giving them preferential support.

28. Expanding financial support strength for publishing media group reform and development. Vigorously striving for the support of all levels’ financial administrations, supporting publishing media group reform and development through special cultural industry development funds, subsidies, loan discounts, awards, etc.; granting special awards to publishing media groups having obtained prominent achievements in “marching out”; granting focus support to publishing media groups implementing major publishing projects to establish the Socialist core value system, accumulate and inherit the nation’s excellent culture, through State publishing funds.

29. Promoting publishing media groups to expand funding channels. Supporting publishing media groups to realize their main operational businesses to entirely go on the market; recommending publishing media enterprises researching and developing high and new technology to go on start-up market lists; strengthening all levels’ administrative press and publications controlling departments to cooperate strategically with financial organs, and provide convenient conditions to publishing media groups concerning credit and funding; promoting and formulating policies supporting publishing media groups to put up intangible assets and pledge loans such as patent rights, trademark rights, copyrights, indigenous brands, etc.

30. Strengthening market system construction. Researching the formulation of policy measures breaking through regional blockades and sector barriers, supporting and protecting publishing media groups’ cross-regional and cross-sector reorganization and operation. Through integrated methods of policy adjustment and market mechanisms, establishing and perfecting press and publications market service systems connecting substantive bookstores and online bookstores, that link up urban and rural distribution. Orderly developing market for press and publications talents, information, technology, copyright and other factors, establishing and perfecting resource appraisal systems, asset trade system, raising factor circulation’s marketization levels. Expanding copyright protection strength, deeply launching “Sweeping Pornography and Striking the Illegal”, standardizing textbook and tutorial material publishing market order, striving to reform and optimize publishing market environments. Strengthening sector credit system construction, perfecting sector standards and sector norms, launching sector self-discipline and honesty propaganda education across the entire sector, creating a unified and open, competitive and orderly, healthy and flourishing market environment for the accelerated development of publishing media groups.

31. Strengthening talent team construction. Expanding State input strength for publishing media human resources, forcefully implementing the “one batch of four” talent fostering project and famous press and publications personality projects, constructing publishing media talent training basis in famous higher education institutes nationwide. Perfecting press and publications special technology personnel professional qualifications systems. Bringing non-publicly owned cultural organs’ talent teams into sector talent construction systems, vigorously fostering and fully giving rein to their function. Perfecting talent circulation mechanisms, shaping systems and mechanisms benefiting all kinds of talents to come to the fore, providing talent support for publishing media group reform and development.

32. Establishing and completing scientific appraisal and incentive mechanism. Integrating publishing media group reform and development reality, comprehensively planning social effect and economic effect, orientation requirements and profit quota, short-term business objectives and long-term development strategies, etc. scientifically setting up appraisal norms, exploring the establishment of scientific statistical and professional achievement assessment systems benefiting publishing media groups’ sustainable development, exploring the establishment of long-term mechanisms encouraging publishing media group managers and the managing level, permitting publishing media groups with mature conditions to implement business management-level shareholding incentive mechanisms with approval.

24 February 2012

新闻出版总署文件

新出政发〔2012〕3号

关于加快出版传媒集团改革发展的指导意见

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：
为贯彻落实党的十七届六中全会精神，充分发挥出版传媒集团在新闻出版改革发展中的主导作用，按照《国家“十二五”时期文化改革发展规划纲要》和《新闻出版业“十二五”时期发展规划》要求，现就加快出版传媒集团改革发展提出如下意见。
一、充分认识加快出版传媒集团改革发展的重要性紧迫性
1．党的十六大以来，新闻出版行业按照中央的部署和要求，积极、稳妥、有序地开展经营性新闻出版单位转企改制，加快资源整合和结构调整，组建了一批出版传媒集团。“十一五”时期，出版传媒集团不断深化改革、加快发展，出版了一大批精品力作，较好地满足了广大人民群众的精神文化需求；一批出版传媒集团完成了公司制改造，初步建立了现代企业制度；一批出版传媒集团相继实现了股份制改造并上市融资，成长为文化产业的战略投资者；一批出版传媒集团加快了“走出去”步伐，为中华文化走向世界作出了重要贡献。与此同时，出版传媒集团产业规模不断扩大，发展质量不断提高，在新闻出版业中的地位和作用日益凸显，成为新闻出版改革发展的主力军。
2．面对中央对文化改革发展提出的新要求，面对人民群众对精神文化产品的新期待，面对建设新闻出版强国的新使命，面对新技术带来的新挑战，出版传媒集团改革发展还存在着许多不适应，表现为：体制不顺，机制不活，发展活力不强；集约化程度低，发展同质化，市场竞争力不强；与科技融合程度低，转型升级迟缓，创新能力不强；高层次人才缺乏，经营管理能力不强。同时，地区和行业封锁，布局结构和出版资源配置不合理，诚信体系不健全等问题，制约着出版传媒集团改革发展。
3．坚持中国特色社会主义文化发展道路，努力建设社会主义文化强国，新闻出版行业承担着重大历史责任。出版传媒集团作为新闻出版体制改革的排头兵、新闻出版产业发展的主力军，在引领社会主义文化前进方向、建设社会主义核心价值体系、传播知识和传承文明、维护国家文化安全等各方面，发挥着重要的作用。加快出版传媒集团改革发展，是发展公益性文化事业，保障人民基本文化权益，满足人民日益增长的精神文化需求的迫切需要；是加快发展新闻出版产业，推动文化产业成为国民经济支柱性产业，服务国家经济社会发展大局的迫切需要；是加快转变新闻出版业发展方式，调整产业结构，增强整体实力的迫切需要；是增强社会主义先进文化对内凝聚力、对外影响力，推动中华文化“走出去”，提升国家软实力的迫切需要。
二、加快出版传媒集团改革发展的指导思想、原则要求和主要目标
4加快出版传媒集团改革发展的指导思想是：深入学习贯彻落实党的十七届六中全会精神，以邓小平理论和“三个代表”重要思想为指导，坚持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，以科学发展为主题，以转变发展方式为主线，以深化改革为动力，以科技进步和自主创新为支撑，以改革、改组、改造和加强管理为主攻方向，进一步整合资源、优化结构，构建充满活力、富有效率、更加开放、有利于出版传媒集团科学发展的体制机制，解放和发展新闻出版生产力，推动出版传媒集团改革发展取得新突破。
5加快出版传媒集团改革发展的原则要求是：坚持社会主义先进文化的前进方向，全面贯彻“二为”方向和“双百”方针，大力推进社会主义核心价值体系建设；坚持把社会效益放在首位，坚持社会效益与经济效益的有机统一；坚持政府引导和市场调节相结合，充分发挥市场配置资源的积极作用；坚持发展新闻出版主业，兼顾多元化经营；坚持利用好国际国内两个市场、两种资源，努力增强中华文化的影响力和传播力；坚持新闻出版事业和新闻出版产业协调发展，提高出版传媒集团提供公共文化服务和推动文化产业发展能力；坚持扶优扶强，努力打造国际一流的出版传媒企业。
6加快出版传媒集团改革发展的主要目标是：着力构建文化产品生产创作新机制，推出更多无愧于历史、无愧于时代、无愧于人民的精品力作；着力进行公司制改造，建立现代企业制度；着力推进文化科技创新，实现出版传媒集团的转型升级；着力加强管理，激发出版传媒集团的发展活力；着力推动联合重组，破除地区封锁和行业壁垒，实现出版传媒集团跨媒体、跨地区、跨行业、跨所有制、跨国界发展；着力推动出版传媒集团“走出去”，提升中华文化的国际影响力。到“十二五”期末，进一步做强做优国家层面人文、教育、科技三大出版传媒集团,培育多个年销售收入超过200亿的大型骨干出版传媒集团；推动新华书店跨地区兼并重组，组建全国性国有大型发行集团；基本形成核心竞争力强、主业挺拔、品牌突出、管理科学的出版传媒集团集群；基本形成南北与东中西部布局合理，中央与地方、图书出版与报刊出版、单一媒体与多种媒体、综合型与专业型、大型集团与专、精、特、新各类出版传媒企业优势互补、合作竞争的新格局。
三、进一步深化出版传媒集团体制改革
7完善法人治理结构。指导和推动出版传媒集团切实规范转制到位，通过有效的制度安排，提高企业的市场竞争能力。健全董事会、监事会和经营管理层，探索建立职业经理人制度，明确所有者、经营者各自职责，形成符合现代企业制度要求、体现文化企业特点的资产组织形式和经营管理模式。
8推进股份制改造。指导和推动一批具备条件的出版传媒集团进行股份制改造，引入其他行业大型国有企业作为战略投资者，在国家政策许可范围内允许有序引入非公有制资本；鼓励出版传媒集团之间通过联合重组、参股等方式进行股份制改造，实现股权多元化。
9转换内部经营机制。按照市场规则和新闻出版发展规律，推动出版传媒集团继续深化以劳动、人事和分配三项制度为核心的内部改革。建立完善的企业职工考评制度和激励制度，设计合理的薪酬体系，鼓励智力、版权、技术等生产要素参与收益分配。
10引导和规范国有出版传媒集团与非公有文化企业开展合作。引导和规范国有出版传媒集团与非公有文化企业开展产品合作、项目合作、资本合作；允许国有出版传媒集团引进具备资质的非公有文化企业作为国有出版传媒集团的一个部门参与出版活动；允许出版传媒集团控股或参股成长性较好的非公有文化企业，实现跨所有制发展。
四、积极推进出版传媒集团战略性改组
11支持出版传媒集团兼并重组。鼓励出版传媒集团通过整合报纸、期刊、图书、音像制品、电子出版物、数字出版业务和出版、印刷复制、发行等资源，实现多媒体、全产业链发展；鼓励出版传媒集团对业务相近、资源相通的中央和地方出版企业进行兼并重组，实现跨地区发展；鼓励出版传媒集团兼并重组新闻出版领域以外的其他国有企业，实现跨行业发展。支持主业突出、具有品牌优势的专业性出版传媒集团走特色经营之路。鼓励和支持转企改制到位的新闻出版单位自愿加入各类出版传媒集团。
12支持出版传媒集团之间进行战略性合作。支持出版传媒集团采取联合研发、资源共享、平台共建、合作经营等方式进行战略性合作；支持出版传媒集团通过异地设立分支机构、连锁经营、与同类企业进行产品、项目和资本合作等方式，实现跨地区经营；支持出版传媒集团与广播电视、电信等行业的大型企业开展战略合作。
13推动出版传媒集团转变发展方式。指导和推动出版传媒集团制定科学的战略规划,调整产业结构, 转变经营思路,由主要依靠国内市场、国内资源向依靠国内国际两个市场、两种资源转变，由主要依靠单一出版业态向依靠以出版经营为核心的多元文化服务转变，由主要依靠传统出版业态向依靠传统出版业态与新兴出版业态有机融合转变，由主要依靠资源扩张向主要依靠科技进步、文化创新和提高劳动者素质转变，实现又好又快发展。
五、大力支持出版传媒集团应用高新技术和推动产业升级
14支持出版传媒集团应用高新技术。支持出版传媒集团加强核心技术、关键技术、共性技术攻关，加强数字内容加工、存储、传输、阅读等新技术和装备的应用，加快科技创新成果转化，不断提高新闻出版技术装备水平；支持出版传媒集团自主研发和引进吸收高新技术，运用高新技术改造和提升传统生产方式、生产流程和基础设施；推动出版传媒集团加快实现存量出版资源数字化，打造涵盖多种出版资源的数字传播技术和资源库，对内容资源进行全方位、深层次的开发利用；鼓励开发应用互联网、物联网和云计算技术，构建开放式、综合性、多功能集成的流通信息平台；支持出版传媒集团和大型电子商务企业进行战略合作和资源整合，构建线上流通和线下流通相结合的现代化出版物流通体系。
15支持出版传媒集团发展数字出版产业。支持出版传媒集团实施数字化战略，加快发展有声阅读、电子书、电子书包、数字报、精品学术期刊数据库等；支持出版传媒集团发展以网络出版、手机出版、云出版等为代表的出版新业态；培育一批以数字化引领、全媒介经营为特征的新型出版传媒集团，加快建立适应数字出版产业发展的市场主体；支持出版传媒集团积极探索数字出版产业发展的新途径。
16支持出版传媒集团建立科技创新体系。鼓励和引导企业资本和社会资金投向技术改造，形成面向市场的新产品研发和新技术创新机制；鼓励建立科技工作战略规划，设立科研部门，完善科研制度，加大科研经费投入；支持开展标准化工作，推动企业标准成为行业标准、国家标准和国际标准。
六、切实加强出版传媒集团科学管理
17加强出版产品内容创作生产的引导。出版传媒集团要立足发展先进文化，把为人民提供更好更多的精神食粮作为管理的首要任务，要坚持正确的出版导向，把遵循社会主义先进文化前进方向、人民群众满意作为评价出版产品的最高标准，形成以群众评价、专家评议和市场检验相结合的科学评价机制。
18健全内部管理机制。以明确范围、规范程序、强化监督和责任追究为重点，建立健全出版传媒集团重大决策、重要人事任免、重大项目安排以及大额度资金运作事项的“三重一大”决策、执行和监督体系。推动企业内部管理创新，强化质量管理和成本核算，形成有效的激励和制约机制。加强领导班子思想政治建设，增强政治敏锐性和政治鉴别力，筑牢思想防线，确保导向正确。充分发挥企业党组织的政治核心作用。推动企业加强自身品牌建设、内部文化建设，不断提高企业凝聚力，提升企业整体形象，形成体现文化企业特点的经营理念和发展模式。
19科学整合内部资源。推动出版传媒集团优化产业结构，做强主业、做大主体，提升核心竞争力；推动出版传媒集团整合同类业务及上下游业务，合理布局产业链、产品链，提高资源集中度和综合效益；推动出版传媒集团围绕主业发展相关文化产业，延伸产业链条，形成新的增长点；推动出版传媒集团建立与业务整合、市场化经营相适应的管控模式和组织架构，提高管理效能；推动出版传媒集团兼并重组后在发展战略、管理、品牌、业务、企业文化等层面实施有效整合，形成综合竞争优势。
20建立健全出版传媒集团编委会制度。支持出版传媒集团通过建立健全编委会，加强对内容资源的质量管理、品牌管理、版权管理；支持出版传媒集团加强对内容资源进行有序开发,形成各具特色的优质产品;支持出版传媒集团加强对所属出版机构选题策划、内容创新、产品设计和市场营销的管理协调，努力创作生产内容与形式高度统一的原创精品出版物。
21加强人力资源规划与开发。指导和推动出版传媒集团创新人才激励机制，健全人才选拔机制，建立完善培训制度；采取公开招聘、定向培养、业外引进等多种方式，培养、吸引、凝聚一批专业技术人才和复合型高级经营管理人才；支持出版传媒集团培育一支门类齐全、结构合理、梯次分明、素质优良的员工队伍。
七、鼓励和扶持出版传媒集团“走出去”
22支持出版传媒集团提升品牌竞争力。支持出版传媒集团深入挖掘民族文化资源，运用符合时代特征的文化表现形式，把传统元素与现代元素有机结合，把民族特色与世界潮流有机结合，生产更多具有自主知识产权和国际竞争力的出版产品，培育一批国际知名品牌。
23支持出版传媒集团采取多种方式“走出去”。支持出版传媒集团拓展对重点国家和地区的版权输出；支持有竞争力的传统出版产品和多种形态的数字出版产品进入国际市场；支持有实力的出版传媒集团兼并、收购境外有成长性的优质出版企业；支持有条件的出版传媒集团通过独资、合资、合作等方式，到境外建社建站、办报办刊、开厂开店；支持出版传媒集团参与建设两岸出版交流试验区，在两岸出版交流合作中先行先试，推动两岸新闻出版业共同繁荣发展。
24支持出版传媒集团拓展国际传播渠道。支持出版传媒集团通过参与国内外具有国际影响力的重点文化会展活动，提升中国出版产品在国际上的影响力；鼓励出版传媒集团加强与全球性和区域性大型连锁书店合作，进一步拓展国际主流营销渠道，开拓网络书店、在线阅读等新型出版物销售渠道，整合海外华文出版物营销渠道，构建中国出版产品国际立体营销网络和国际交易平台。
八、加快出版传媒集团改革发展的保障措施
25进一步理顺管理体制。理顺行业管理和资产管理的关系，形成党委统一领导、党政齐抓共管、党委宣传部门组织协调、行政主管部门依法管理、企业自主经营的格局。新闻出版行政主管部门对出版传媒集团改革发展要负起规划、指导、协调、服务和管理的职责。要严格执行文化资本、文化企业、文化产品市场准入和退出政策，综合运用法律、行政、经济、科技等手段提高管理效能。要切实加强出版传媒集团改革发展中的反腐倡廉建设，严格执行党风廉政建设责任制，推动国有企业领导人廉洁从业有关规定的完善和落实。
26制定和落实出版资源向出版传媒集团倾斜的政策。支持条件成熟的出版传媒集团跨行政区设立有出版权的子公司；对跨地区和外向型经营的出版传媒集团，优先配置出版资源；对于面向海外市场的非公有制文化机构，经批准后可以单独配置出版资源。
27加大对出版传媒集团重大项目的扶持力度。加快新闻出版改革发展项目库建设步伐，引导和带动出版传媒集团改革发展；支持和鼓励出版传媒集团积极规划、实施重大产业项目，对于出版传媒集团实施的自主创新、转型升级的重大项目优先纳入新闻出版改革发展项目库，优先给予支持。
28加大对出版传媒集团改革发展资金支持力度。积极争取各级财政支持，通过文化产业发展专项资金，以贴息、补助、奖励等方式，支持出版传媒集团改革发展；对“走出去”取得突出成绩的出版传媒集团给予专项奖励；对于出版传媒集团实施建设社会主义核心价值体系、积累和传承民族优秀文化的重大出版工程，通过国家出版基金予以重点支持。
29推动出版传媒集团拓展融资渠道。支持出版传媒集团实现主营业务整体上市；推荐研发高新技术的出版传媒企业到创业板上市；加强各级新闻出版行政主管部门与金融机构的战略合作，为出版传媒集团信贷融资提供便利条件；推动制定支持出版传媒集团以专利权、商标权、著作权、自主品牌等无形资产出资、质押贷款等有关政策。
30加强市场体系建设。研究制定打破地区封锁和行业壁垒的政策措施，支持和保护出版传媒集团跨地区、跨行业重组和经营。通过政策调节与市场机制相结合的办法，建立完善联通实体书店与网上书店、贯通城市与乡村发行的新闻出版市场服务体系。有序发展新闻出版人才、信息、技术、版权等要素市场，建立健全资产评估体系、产权交易体系，提高要素流通的市场化程度。加大版权保护力度，深入开展“扫黄打非”，规范教材教辅出版市场秩序，着力改善和优化出版物市场环境。加强行业信用体系建设，完善行业标准和行业规范，在全行业开展行业自律和诚信宣传教育，为出版传媒集团加快发展创造统一开放、竞争有序、健康繁荣的市场环境。
31加强人才队伍建设。加大国家对出版传媒人力资源的开发投入力度，大力实施“四个一批”人才培养工程和新闻出版名家工程，在全国知名高校建设出版传媒人才培训基地。完善新闻出版专业技术人员职业资格制度。把非公有文化机构的人才队伍纳入行业人才建设体系，积极培养和充分发挥其作用。完善人才流动机制，形成有利于各类人才脱颖而出的体制机制，为出版传媒集团改革发展提供人才支撑。
32建立健全科学的评价和激励机制。结合出版传媒集团改革发展实际，统筹社会效益与经济效益、导向要求与利润指标、短期经营目标与长期发展战略等，科学设置评价指标，探索建立有利于出版传媒集团可持续发展的科学统计和业绩考核体系，探索建立激励出版传媒集团经营者、管理层的长效机制，允许条件成熟的出版传媒集团经过批准，探索试行经营管理层股权激励机制。

二〇一二年二月二十四日