Decision concerning Strengthening Comprehensive Public Order Governance

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(19 February 1991)

Ten years ago, the Centre put forward a policy on comprehensive public order governance. This policy has been reiterated many times afterwards in Centre documents and State Council documents. In ten years, all localities have done large amounts of highly effective work in the area of comprehensive public order governance, creating not a little experience and obtaining great achievements, this has had an important function in safeguarding public order and social stability. But, when looking at the present situation, comprehensive public order governance work in all localities has developed without balance, not a few regions have not implemented it in all departments and grass roots work units, this situation is far from suitable to the requirements of the circumstances for development. At present, our country’s public order circumstances are still severe, crime and other public order problems increase steadily, and popular masses in many places lack a sense of security. In order to implement the spirit of the 7th Plenum of the 13th Party Congress, safeguard a long period of peace and order for the country, guarantee the smooth progression of Socialist modernization, reform and opening up, comprehensive public order governance work must be further strengthened forcefully on a nationwide level. To this end, the following is hereby decided.

I, Fully understand the special importance of strengthening comprehensive public order governance under new circumstances.

Comprehensive public order governance is the correct policy put forward by the Centre through summarizing historical experience. The practice of ten years proves that strengthening comprehensive public order governance has an important significance for many areas: (1) it is the basic way out to resolve our country’s public order problems. Public order problems are the synthesized reflection of many social contradictions and negative influences. We must persist for a long time in strictly, rapidly and severely attacking criminal acts gravely harming public order according to the law, but only relying on attack cannot effectively reduce the complex factors engendering crime and public order problems, only through comprehensive public order governance can we be successful. (2) It is an important guarantee to create a stable and favourable social order for the implementation of the ten years development plan for the national economy and society and the “Eighth Five-Year Plan”. (3) It is an important component part of the construction of a Socialist spiritual civilization. Much of comprehensive public order governance work is important content of spiritual civilization construction, by doing comprehensive governance well, spiritual civilization construction can be promoted. (4) It is a sort of important form of and channel for persisting in the people’s democratic dictatorship, and an important reflection of the superiority of the Socialist system. (5) It is an urgent need to closely link up with the popular masses, and a major matter in complying with the popular will, and enjoying popular support. (6) It is an important measure in strengthening the construction of the Socialist legal system. Through governance according to the law and administration according to the law, we can bring all management work onto legal system tracks. (7) It is a new development to persist in the principle of integrating the work of specialist organs and the mass line under new circumstance, and is a new path having Chinese characteristics to resolve public order problems.

II, The tasks of, requirements and objectives for comprehensive public order governance.

The basic tasks of comprehensive public order governance are: under the uniform leadership of all levels’ Party Committees and governments, all departments are to coordinate and reach consistency, grasp matters neatly and manage them jointly, rely on the broad popular masses, utilize political, economic, administrative, legal, cultural, educational and many other such methods to deal with public order, attack crimes and prevent crimes, guarantee social stability, and create a favourable social environment for the construction of Socialist modernization construction, reform and opening up.

The requirements for comprehensive public order governance work are: (1) all levels’ Party Committees and governments must list comprehensive governance on the important matters agenda, complete comprehensive public order governance leadership organs and working organs, and regularly research deployment work. (2) All departments and all work units are to grasp and manage matters together, shaping a picture of “who controls is responsible”. (3) All measures are to be implemented to the level of town and village grass-roots work units,  mass prevention and mass-treatment networks are to be shaped, broad mass legal system conceptions are to be universally strengthened, dare to struggle with unlawful and criminal acts.

The main objectives for comprehensive public order governance are: social stability, major malicious cases and frequently occurring cases to be controlled and progressively reduced, a great reduction in social repulsive phenomena, the appearance of regions and work units with chaotic public order to thoroughly change outlook, public order to improve, the masses to have a sense of security.

III, The work scope of comprehensive public order governance.

The work scope of comprehensive public order governance mainly includes the six areas of “attack, prevention, education, management, construction, reform”.

Attack is the first and foremost sector of comprehensive governance, and is the precondition to implement all other comprehensive governance measures. We must, for a long time, persist in strictly, rapidly and severely attacking grave criminal activities violating public order according to the law; persist in eradicating the “Six Evils” year in, year out, at any time where they are discovered, they must be banned, there can be no slackening at any time. We must both further strengthen the specialist work of political-legal departments, to raise their capacity to ferret out and solve cases and deal with crime otherwise, and must fully mobilize and rely on the broad popular masses under the vigorous coordination of all departments and all work units, shaping a situation where everyone bravely struggles with ruffians and resists the “Six Evils”.

Forcefully strengthening prevention work is a vigorous measure to reduce all sorts of criminal activities and safeguard public order. We must strengthen ideological and political work, broadly mobilize and organize the masses, adopt all sorts of prevention mechanisms, eliminate factors leading to instability and hidden dangers for insecurity. We must especially vigorously enlighten and accommodate all sorts of social contradictions and popular disputes, correctly deal with contradictions among the people, avoid the aggravation of contradictions. We must strengthen security protection work and technological prevention measures in organs, schools, enterprise and undertaking work units; strengthen security prevention measures for urban residence compounds, and list it in urban construction plans. We must broadly organize staff members and masses to vigorously assist the People’s Armed Police, strengthen joint town and country public order defence, strengthen mass prevention and mass treatment mechanisms, and fully give rein to the function of people’s militia in safeguarding public order. In large and mid-size cities, coastal and border regions, we must organise joint army, police and popular defence. Under the presupposition of strengthening management, give rein to the function of security service companies. Mass prevention and mass treatment teams may be voluntary, and may be paid-for services. Where they are paid-for services, apart from proper funding allocation from local finances, after the local People’s Government approves it according to regulations, enterprise and undertaking work units, and residents my appropriately collect some money, or provide some people, to be used to safeguard public order on that work unit or that region. But we must persist in the principles of voluntarily, benefit, moderation and directed fund use, reducing the burden on enterprises and the mass as much as possible. People who dare to struggle with lawbreakers and criminal elements shall be rewarded and commended. Some localities have established rules on “award foundations for those ready to battle for the just cause”, which merits popularization. Judicial organs shall determinedly provide support and guarantees for legitimate defence taken when struggling with lawbreakers and criminal elements according to the law.

The basic problem lies in strengthening education, we must especially strengthen education for the young. This is the strategic measure in safeguarding public order. All departments and all work units must earnestly conduct education on persisting in the Four Cardinal Principles and opposing bourgeois liberalization, continue to launch education on the “Five Loves” and the “Four Haves”, oppose extreme individualism and anarchism. We must continue to broadly, deeply and solidly launch law popularization education and all sorts of legal system propaganda and education among the whole body of the people, further raise the legal consciousness of the entire people, and strengthen a notion of upholding the law and abiding by the law. The focus of school education lies in educating people, they must ruthlessly rasp the moral education of students, earnestly organize good legal system classes, and must especially do ideological transformation work of “doubly poor students” and reform school students well. Propaganda, cultural, art, film, television, publishing and other departments and work units must put social effect first, publish more healthy and beneficial spiritual products, and reject cultural rubbish. The Communist Youth League, labour unions and Women’s Federations must closely combine with work units, neighbourhoods (villages), schools and households, strengthen ideological and political education of the young, and must especially do education and remedial work of youth that is lagging behind and of lightly unlawful or criminal youth. Grass Roots Party and government organizations and public security stations must implement assistance, education and settlement work for people who are released after serving a sentence or released from re-education through labour.

Strengthening administrative management work in al areas is an import method to block loopholes for crime, reduce public order problems, and establish a favourable social order. At present, we must give prominence to grasping all public order management work, and must especially strengthen management over the floating population, management of inns, waste recycling points, dance halls, video screening points and other special sectors, cultural market and publication management, county fair management and management over crucial points such as treasuries and important goods warehouses.

Strengthening grass-roots organization construction and institutional construction is the key for implementing comprehensive governance. All levels’ Party Committees and government must earnestly implement the spirit of relevant Centre instructions, firmly grasp rectification, construction and building of town and village grass-roots organization, we must especially strengthen village-level organisation construction with Party branches at the core, ensuring that all comprehensive governance measures are implemented down to the grass roots, and implement them among the people. We must establish and complete all sorts of public order prevention systems, and must especially universally practice all sorts of comprehensive governance responsibility systems. Accelerate the formulation and perfection of comprehensive governance laws and regulations.

Reform work is special prevention work to educate the people, save the people and prevent reoccurrence of crime. Reform through labour and re-education through labour organs must strive to overcome difficulties, persist in the policies of “reform first, production second” and “education, persuasion and remedy”, and further raise reform quality. We must continue to implement the “extension forward, outward and backward” of reform work, mobilize the entire society to participate and support in reform work. Labour departments must, according to State employment policies integrating recommending employment, voluntary organization of employment and finding employment by oneself, vigorously and appropriating employment for people released after serving their sentence or after reform through labour. Enterprise and undertaking work units shall, when recruiting workers treat people released after serving their sentence or after reform through labour equal to urban unemployed persons, and may not discriminate against them.

Work in the above six areas must be efficient, complement each other, none is dispensable, it cannot be so that one thing is done and another is neglected. In short, we must persist in combining attack and prevention, treat both causes and symptoms, the focus is on root principles, and realistically implement all measures in comprehensive governance. This is to be persisted for several years, and there must be large results.

IV, Ruthlessly grasp the implementation of the principle “who manages is responsible”.

The principle of “who manages is responsible” is implemented this is the core of realizing comprehensive public order governance. This principle is used for all Party, Government and Army departments and all people’s organizations. All departments must, on the basis of comprehensive public order governance tasks, requirements and work scopes, actively seek for their own position, clarify the duties of their departments and systems, and realistically bear the social responsibility of jointly safeguarding public order.

All departments’ joint responsibilities mainly include the following three aspects: one is that all Party, Government and Army departments and all people’s organizations, from the centre to the localities, must give rein to their own functions, integrate their professions, earnestly grasp the work of their system in participating in comprehensive public order governance, prevent that negative influences on public order are created due to errors in the work of their departments, actively bear the comprehensive responsibility for reducing law-breaking and crime, safeguarding public order and social stability. Second, all Party, Government and Army departments and all people’s organizations must grasp  the comprehensive governance work of their system, and prevent that major crimes and major public order problems occur. Third, all organs, factories, schools, enterprise and undertaking work units and people’s organizations must “manage their own people, look after their own doors, and handle their own matters”, realistically strengthen ideological education for internal personnel and all security protection work. As soon as problems occur, the responsibility of relevant department or work unit directly responsible leaders must be prosecuted taking circumstances into consideration.

Implementing the principle of “who manages is responsible” must be progressively systematized and legalized. Concerning the questions of which responsibilities controlling departments shall bear, how to bear them, and how to deal with departments not bearing them, laws, regulations or rules must be promulgated, clear provisions must be made, ensuring that there is law to rely on and there are rules to follow.

Comprehensive public order governance requires the organic integration of “grasping systems, systemic grasping” with “integrating horizontal and vertical management, and giving first place to horizontal management”, a localized management principle is implemented. Relevant departments’ subordinate enterprise and undertaking work units shall submit to the unified leadership of the Party Committee and government of their locality, controlling departments must vigorously coordinate with local Party and government organizations, and supervise their subordinate work units in doing comprehensive public order governance work well, eliminate horizontal and vertical fragmentation, and the phenomenon that each does things their own way, and no one takes up responsibility.

V, Strengthening leadership, striving to implement comprehensive public order governance down to the grass roots.

Leadership is crucial in doing comprehensive public order governance well. All levels’ Party and government leaders must strengthen leadership over comprehensive governance in terms of ideology, organization and work, earnestly organize and coordinate the work of all departments, and resolve problems in implementation, guaranteeing the satisfactory implementation of all measures.

(1) All levels’ leaders must truly grasp and realistically manage matters. They must list comprehensive public order governance on the important matters agenda of all levels’ Party Committees and governments, earnestly research and resolve all sorts of problems existing in implementation work. All levels’ Party and government leaders must take matters in their own hands, one level grasping another level, one level guaranteeing another level, grasping everything to the bottom, and implement layer upon layer. They must timely mobilize and deploy, grasp the implementation of one matter after another, have one department after another grasp implementation, grasp matters and not let them go, persevere, and earnestly inspect and supervise matters, reward, punish and honour commitments.

(2) Complete leadership mechanisms, substantiate and strengthen working organs. Comprehensive public order governance work involves all aspects of the entire Party and the entire society, and must be led uniformly by Party Committees. At the same time, governments must also bear important leadership responsibilities, large amounts of work must be organized and implemented by governments. Comprehensive public order governance leadership mechanisms are, under the uniform leadership of Party Committees, Party and government jointly grasping matters, working organs concretely guiding and coordinating matters, all departments and all work units taking responsibility. The most important is that all levels’ main Party and government leaders must take an interest themselves, integrate broad appeals with concrete guidance, and truly take up the responsibility for grasping public order.

In order to strengthen leadership and concrete guidance over comprehensive public order governance work, the Centre has decided to establish a Comprehensive Public Order Governance Committee, and a subordinate Office. All levels from province, autonomous region and municipality to prefecture, city, county and district, must establish and complete leadership organs for comprehensive public order governance, with a leading comrade from the Party Committee at the head, a government deputy as assistance, and participation by responsible comrades of all relevant departments. County-level or higher comprehensive public order governance working offices must be further substantiated and strengthened, and jointly handle business with the political-legal committees. Villages, towns and neighbourhoods must establish corresponding comprehensive public order governance leadership organs, complete working organs and allocate special persons who are responsible. It is permitted that higher levels assign an experienced public security or judicial cadre to act as a deputy in neighbourhood working offices or town (village) governments, and specially grasp comprehensive public order governance work.

All levels’ comprehensive public order governance leading organs are the advisors and assistants of Party Committees and governments leading comprehensive public order governance, their main duties are: (1) researching and implementing Party and State principles and policies concerning comprehensive public order governance. (2) Making general deployments of comprehensive public order governance work in their regions or departments for a specific period and supervising implementation. (3) Organizing and guiding all departments and all work units in implementing comprehensive governance measures. (4) Summarizing and popularizing model experiencing, rewarding advances, and promoting the rising generation. (5) Dealing with relevant matters submitted by Party Committees and governments. Comprehensive public order governance leading organs put the leadership of the same level’s Party Committee first, and at the same time accept guidance from higher-level comprehensive public order governance organs.

(3) Establish multi-layer comprehensive public order governance objective management responsibility systems. Between all local levels’ Party and government leaders, between Party and government leaders, and departments and work units, between factory directors, managers and responsible persons for workshops and teams, multi-layer letters of responsibility must be signed. We must require them to divide comprehensive public order governance tasks into some concrete objectives, formulate measures that are easy to implement and inspect, establish strict supervision and inspection mechanisms, quantitative assessment structures and comparative reward and punishment systems. We must integrate public order tasks with economic responsibility systems and leadership office term responsibility systems, link up comprehensive public order governance target management with the political honour, achievement assessment, rank promotion and economic benefits of responsible persons, link it up with the selection and promotion of civilized work units and enterprises, and implement comprehensive public order governance veto power systems. The implementation of responsibility systems must be regularly inspected and assessed, earnest summary and assessment must be conducted annually, progress must be rewarded, and an upsurge of learning and catching up shaped. But we must prevent formalism and unrealistic high targets, avoid the emergence of filing falsified cases, employing trickery and other mistaken methods.

(4) Strengthen categorized guidance, integrate promotion of model experiences with focus governance. All levels’ Party Committees and governments must integrate their real situations, make plans as quickly as possible, and phase in that all sorts of comprehensive public order governance experiences are progressively popularized and coverage is broadened, ensuring that nationwide comprehensive public order governance work greatly forges ahead. We must pay high regard to theoretical research, timely raise practical experience into theoretical understanding, and strengthen theoretical guidance over comprehensive public order governance work.

Focus governance is an effective method to rapidly change the public order situation in a particular region. In nationwide terms, large and mid-size cities, coastal open regions and main communications arteries are focus points for comprehensive governance, and must be dealt with first. In terms of the regions, forces most be concentrated to rectify and deal with the small number of regions, neighbourhoods, towns, villages, hamlets, communications lines and work units where there is disorder or relatively many public order problems.

(5) Strive to implement all comprehensive public order governance measures down to the grass roots. For it to be possible that all comprehensive public order governance measures are implemented down to the grass roots, county, city, town, village and neighbourhood Party and government leaders bear an especially important responsibility. The basic main objectives of implementing comprehensive public order governance measures down to the grass roots are: grass-roots Party and government leaderships give it high regard, and establish comprehensive public order governance work consultation systems; leadership organs and working organs for comprehensive public order governance are completed, and have special persons handling work; certain types of target management responsibility systems are established; mass prevention and mass treatment teams and close prevention measures are in place; the masses are fully mobilized and dare to struggle with crime; crime and public order problems go down, problems that arise can be timely dealt with.

VI, Fully giving rein to the function of political-legal departments and especially public security organs in comprehensive public order governance.

Political-legal departments are important tools of the people’s democratic dictatorship, they are special organs to punish unlawful acts and safeguard social order. Strengthening comprehensive public order governance does not reduce demands of political-legal departments, but they have become higher.

Political-legal departments’ main tasks in comprehensive public order governance are (1) Being good assistants and advisors for Party Committees and governments in leading comprehensive public order governance work, leading the implementation of the general deployment of Party Committees and governments, vigorously participating in comprehensive public order governance activities uniformly organized by Party Committees and governments, and regularly reflecting the situation to Party and government leaders and comprehensive public order governance leading organs, reporting work and putting forward suggestions. (2) Strictly attacking criminals gravely harming public order according to the law, timely investigating, prosecuting and banning “Six Evils” activities, firmly preventing the intrusion of foreign underworld forces and repulsive phenomena. (3) Straitening all public order management measures, inspecting and guiding all work units’ internal security protection work, grass-roots security protection organization, mass prevention and mass treatment team work. (4) Adopting all sorts of measures to change the phenomenon of handling case by case, striving to broaden the social effect of case handling, and vigorously putting forward judicial suggestions and procuratorial suggestions, assisting relevant departments with summarising experiences and lessons, completing management systems, perfecting prevention mechanisms. (5) Summarizing all professional work, launching legal system propaganda and education, and safeguarding education on national security. (6) Public security organs, procuratorates and courts must all vigorously cooperate with administrative judicial departments, forcefully strengthening reform through labour and re-education through labour work, raising reform quality, and ensuring assistance work for light criminals and persons released after serving their sentence or re-education through labour. (7) Strengthening leadership over people’s mediation work organizations, vigorously enlightening and mediating all sorts of popular disputes and dissolving social contradictions. (8) Researching the causes for the increase of crime and public order problems and their rules, putting forward effective countermeasures.

Public security organs are the controlling departments of public order work, and occupy an especially important position in comprehensive public order governance. Public security organs shall, on the basis of strengthening comprehensive public order governance demands, adapt to the restructuring of focus work points, police strength deployment and service systems, improve work methods, and use more human power and energy to strengthen their basic grass roots public order work, in order to give rein to their function well.

All political-legal departments must lower their centre of gravity, reduce upper levels and substantiate basic levels, transform work styles, solve more real problems at the grass roots, and forcefully strengthen the construction of public security stations, People’s Courts, legal service centres and other political-legal grass roots organizations. All levels’ People’s Governments must strive to produce some funds to improve the equipment of grass-roots political-legal work units, improve their work conditions and life conditions.

VII, The focus work tasks of this year.

This year, we must, at the same time as comprehensively strengthening comprehensive public order governance work and forcefully launching public opinion propaganda, solidly grasp the following work points: (1) Strengthening leadership. Adjust and complete all levels’ comprehensive public order governance leadership organs and working organs, ensuring that there are people in the lead at all levels, people doing work at all levels, and real action is grasped at all levels. (2) Formulating plans. From provinces, autonomous regions and municipalities to districts, cities, regions and countries, all levels’ Party Committees and governments must formulate five-year and annual implementation plants adapted to the “Eighth Five-Year Plan”, to implement comprehensive public order governance. Starting this year, this is to be implemented city by city and county by county, every year,, it is to be implemented in a part of cities and counties, strive to achieve that by the end of 1995, all comprehensive public order governance measures are basically implemented in many cities and counties. (3) Focus on governance. All localities must, on the basis of investigation and research, ferret out regions and work units where public order problems occur often, concentrate forces to conduct focused governance and rectification, ensuring that these localities change their appearance as soon as possible. (4) Build the grass roots. Decisively conduct thorough rectification of the small number of paralysed and half-paralysed grass roots Party and government organization in towns and villages, and implement all comprehensive governance measures. (5) Mass prevention and mass treatment. In regions and work units where this is possible, organize mass prevention and mass treatment teams, formulate and implement all kinds of objective management responsibility systems. First and foremost, the internal responsibility systems of organs, enterprise and undertaking work units must be implemented well, ensuring a clear reduction of public order problems within work units. (6) Formulate laws and regulations. The National People’s Congress Standing Committee is suggested to strengthen their resolve on strengthening comprehensive public order governance. All provinces, autonomous regions and municipalities that have not yet formulated comprehensive public order governance regulations must formulate them within this year, and put them into practice. (7) Selection and advancement. All provinces, autonomous regions and municipalities must, on the basis of solid work, launch a one-time assessment of advanced work units and advanced individuals in comprehensive public order governance by the end of this year, and convene an award ceremony. Next year, a comparative assessment event is launched on a nationwide scope, and a nationwide comprehensive public order governance advanced work unit and individual award ceremony will be convened at a suitable time.

Comprehensive public order governance is a formidable and complex systemic project, and is a major matter that the people nationwide pay extreme attention to. It directly relates to the country’s long-time peace and order, and relates to the smooth implementation of the second-phase strategic objectives of our country’s Socialist modernization. All levels’ Party Committees and governments must lead the broad Party members, cadres and masses, be of one heart and mind, make common efforts, do solid work, and strive even harder to create a favourable public order in our country.

 

中共中央、国务院关于加强社会治安综合治理的决定

(一九九一年二月十九日)
中央早在十年前就提出了社会治安综合治理的方针。这个方针以后在中央文件和国务院文件中又多次重申。十年来,各地在社会治安综合治理方面做了大量卓有成效的工作,创造了不少经验,取得了很大成绩,对维护治安秩序和社会稳定起了重要作用。但是,从目前情况看,各地社会治安综合治理工作发展很不平衡,不少地区尚未落实到各部门和基层单位,这一状况远不适应形势发展的要求。当前,我国社会治安形势仍很严峻,刑事犯罪和其他治安问题有增无减,不少地方人民群众缺乏安全感。为了贯彻落实党的十三届七中全会精神,维护国家长治久安,保障社会主义现代化建设和改革开放顺利进行,必须进一步在全国范围大力加强社会治安综合治理工作。为此,特作以下决定:

一、充分认识在新形势下加强社会治安综合治理的特殊重要性。

社会治安综合治理是中央总结历史经验提出的正确方针。十年来的实践证明,加强社会治安综合治理具有多方面的重要意义:(一)它是解决我国社会治安问题的根本出路。社会治安问题是诸多社会矛盾和消极因素的综合反映。必须长期坚持依法从重从快严厉打击严重危害社会治安的刑事犯罪活动,但是仅靠打击不可能有效地减少产生犯罪和社会治安问题的复杂因素,必须全面加强综合治理才能奏效。(二)它是为实施国民经济和社会发展十年规划和“八五”计划创造稳定的、良好的社会秩序的重要保证。(三)它是社会主义精神文明建设的重要组成部分。社会治安综合治理的许多工作就是精神文明建设的重要内容,综合治理搞好了又能推动精神文明建设。(四)它是坚持人民民主专政的一种重要形式和途径,是社会主义制度优越性的重要体现。(五)它是密切党同人民群众联系的迫切需要,是顺应民愿、深得人心的一件大好事。(六)它是加强社会主义法制建设的重要措施。通过依法治理、依法行政,可以把各项管理工作纳入法制轨道。(七)它是新形势下坚持专门机关工作和群众路线相结合原则的新发展,是具有中国特色的解决社会治安问题的新路子。

二、社会治安综合治理的任务、要求和目标。

社会治安综合治理的基本任务是:在各级党委和政府的统一领导下,各部门协调一致,齐抓共管,依靠广大人民群众,运用政治的、经济的、行政的、法律的、文化的、教育的等多种手段,整治社会治安,打击犯罪和预防犯罪,保障社会稳定,为社会主义现代化建设和改革开放创造良好的社会环境。

社会治安综合治理工作的要求是:(一)各级党委和政府都要把综合治理摆上重要议程,健全社会治安综台治理的领导机构和办事机构,定期研究部署工作。(二)各部门、各单位齐抓共管,形成“谁主管谁负责”的局面。(三)各项措施落实到城乡基层单位,群防群治形成网络,广大群众法制观念普遍增强,敢于同违法犯罪行为作斗争。

社会治安综合治理的主要目标是:社会稳定,重大恶性案件和多发性案件得到控制并逐步有所下降,社会丑恶现象大大减少,治安混乱的地区和单位的面貌彻底改观,治安秩序良好,群众有安全感。

三、社会治安综合治理的工作范围。

社会治安综合治理的工作范围,主要包括“打击、防范、教育、管理、建设、改造”六个方面。

打击是综合治理的首要环节,是落实综合治理其他措施的前提条件。必须长期坚持依法从重从快严厉打击严重危害社会治安的刑事犯罪活动;坚持常年除“六害”,随时发现随时取缔,任何时候都不能有丝毫放松。既要进一步加强政法部门的专门工作,大力提高侦察破案等对付刑事犯罪的能力,又要在各部门、各单位的积极配合下,充分发动和依靠广大人民群众,形成人人勇斗歹徒、抵制“六害”的态势。

大力加强防范工作,是减少各种违法犯罪活动和维护社会治安秩序的积极措施。要加强思想政治工作,广泛发动和组织群众,采取各种防范措施,消除不安定因素和不安全隐患。特别是要大力疏导调解各种社会矛盾和民间纠纷,正确处理人民内部矛盾,避免矛盾激化。要加强机关、学校、企事业单位内部的安全保卫工作和技术防范措施;加强城镇居民楼院的安全防范设施,并纳入城市建设规划。要广泛组织职工、群众,积极协助人民警察,加强城乡治安联防,健全群防群治机制,并充分发挥民兵维护社会治安的作用。大中城市和沿海、沿边地区要组织军、警、民联防。在加强管理的前提下发挥保安服务公司的作用。群防群治队伍可以是义务的,也可以是有偿服务的。对有偿服务的,除地方财政适当拨款外,经当地人民政府按规定审批后,可以由企事业单位和居民适当集一点资,出一点人,用于维护本单位或本地区的社会治安。但要坚持自愿、受益、适度、资金定向使用的原则,尽可能减轻企业和群众的负担。对敢于同违法犯罪分子作斗争的人,应给予表彰和奖励。有些地方建立“见义勇为奖励基金会”的办法值得推广。对人民群众同违法犯罪分子斗争中依法采取的正当防卫,司法机关应坚决给予支持和保护。

根本的问题在于加强教育,特别是要加强对青少年的教育。这是维护社会治安的战略性措施。各部门、各单位都要认真进行坚持四项基本原则和反对资产阶级自由化教育,持续开展“五爱”教育和“四有”教育,反对极端个人主义和无政府主义。要在全体公民中继续广泛深入、扎扎实实地开展普法教育和各种形式的法制宣传教育,进一步提高全民的法律意识,增强护法、守法观念。学校教育重在育人,要狠抓学生的品德教育,认真上好法制课,特别是要做好“双差生”、工读生的思想转化工作。宣传、文化、艺术、影视、出版等部门和单位要把社会效益放在第一位,多出健康有益的精神产品、剔除文化垃圾。共青团、工会、妇联要与单位、街道(乡村)、学校、家庭密切结合,加强对青少年的政治思想教育,尤其是要做好后进青少年、轻微违法犯罪青少年的教育挽救工作。基层党政组织和公安派出所要落实对刑满释放、解除劳教人员的帮教安置工作。

加强各方面的行政管理工作,是堵塞犯罪空隙,减少社会治安问题,建立良好社会秩序的重要手段。当前要突出抓好各项社会治安管理工作,特别是要加强对流动人口的管理,旅店、废旧物品回收点、舞厅、录像放映点等特种行业的管理,文化市场和出版物的管理,集贸市场的管理和金库、重要物资仓库等要害部位的管理。

加强基层组织建设和制度建设,是落实综合治理的关键。各级党委和政府必须认真贯彻中央有关指示精神,抓紧整顿建设好城乡基层组织,特别是要加强以党支部为核心的村级组织建设,使综合治理的各项措施落实到基层,落实到群众中去。要建立健全各种治安防范制度,特别要普遍推行各种形式的综合治理责任制。加快制定和完善综合治理的法律、法规。

改造工作是教育人、挽救人、防止重新犯罪的特殊预防二作。劳改劳教机关要努力克服困难,坚持“改造第一,生产第二”和“教育、感化、挽救”的方针,进一步提高改造质量。要继续实行改造工作的“向前、向外、向后延伸”,动员全社会都来参与、支持改造工作。劳动部门要按照国家介绍就业、自愿组织起来就业和自谋职业相结合的就业方针,积极妥善地安排刑满释放、解除劳教人员就业。企事业单位在招工时,对刑满释放、解除劳教人员应与城镇待业人员一视同仁,不得歧视。

上述六个方面的工作环环紧扣,相辅相成,缺一不可,不能有所偏废。总之,要坚持打防并举,标本兼治,重在治本的原则,切实落实综合治理的各项措施。这样坚持数年,必有大的成效。

四、狠抓落实“谁主管谁负责”的原则。

落实“谁主管谁负责”的原则,是实现社会治安综合治理的核心。这项原则适用于所有党政军各部门和各人民团体。各部门都要根据社会治安综合治理的任务、要求和工作范围,主动找准自己的位置,明确本部门、本系统的职责,切实承担起共同维护治安的社会责任。

各部门的并同责任主要包括三个方面:一是从中央到地方,党政军各部门和各人民团体,都要发挥自己的职能作用,结合本身业务,认真抓好本系统参与社会治安综合治理的工作,防止因本部门工作偏差而对社会治安造成消极影响,主动承担起减少违法犯罪、维护社会治安和社会稳定的整体责任。二是党政军各部门和各人民团体,都要抓好本系统的综合治理工作,防止发生重大犯罪和重大治安问题。三是各机关、厂矿、学校、企事业单位和人民团体,都要“管好自己的人,看好自己的门,办好自己的事”,切实加强内部人员的思想教育和各项安全防范工作。一旦发生问题,要酌情追究有关部门、单位直接领导者的责任。

落实“谁主管谁负责”的原则必须逐步制度化、法律化。对各主管部门应负什么责任,怎么负责,不负责怎么办,都要制定法律、法规或者规章,作出明确规定,做到有法可依、有章可循。

社会治安综合治理需要把“抓系统、系统抓”同“条块结合,以块为主”有机地结合起来,实行属地管理原则。有关部门下属的企事业单位,应当服从所在地党委和政府的统一领导,主管部门要积极配合地方党政组织,督促所属单位做好综合治理工作,消除条块分割、各自为政、无人负责的现象。

五、加强领导,努力把社会治安综合治理的措施落实到基层。

搞好社会治安综合治理,领导是关键。各级党政领导要从思想上、组织上、工作上加强对综合治理的领导,认真组织、协调各部门的工作,解决落实中的问题,保证各项措施落实到基层。

(一)各级领导要真抓实管。要将社会治安综合治理列入各级党委和政府的重要议事日程,认真研究解决落实工作中存在的各种问题。各级党政领导要亲自动手,一级抓一级,一级包一级,一抓到底,层层落实。要及时动员部署,一项一项抓落实,一个部门一个部门抓落实,抓住不放,持之以恒,并认真检查督促,奖惩兑现。

(二)健全领导体制,充实和加强办事机构。社会治安综合治理工作涉及全党全社会各个方面,必须由党委统一领导。同时,政府也要担负起重要的领导责任,大量的工作要由政府去组织实施。社会治安综合治理的领导体制是,在党委统一领导下,党政共抓,办事机构具体指导协调,各部门、各单位各负其责。最重要的是各级党政主要领导要亲自过问,把一般号召和具体指导结合起来,真正担负起抓社会治安的责任。

为了加强对社会治安综合治理工作的领导和具体指导,中央决定成立社会治安综合治理委员会,下设办公室。各地从省、自治区、直辖市到地市、县区,都要建立健全社会治安综合治理领导机构,以党委一名领导同志为首,政府一名副职协助,各有关部门负责同志参加。县以上各级社会治安综合治理的办事机构要进一步充实加强,并同政法委员会合署办公。乡镇、街道也要设立相应的社会治安综合治理领导机构,健全办事机构或配备专人负责。可以由上级选派一名有经验的公安、司法干部,到街道办事处、乡(镇)政府任副职,专抓社会治安综合治理工作。

各级社会治安综合治理领导机构是党委和政府领导综合治理工作的参谋和助手,其主要职责是:(1)研究贯彻党和国家关于社会治安综合治理的方针政策。(2)对本地区、本部门一个时期的社会治安综合治理工作作出总体部署,并监督实施。(3)组织指导各部门、各单位落实综合治理措施。(4)总结推广典型经验,表彰先进,推动后进。(5)办理党委和政府交办的有关事项。社会治安综合治理领导机构以同级党委领导为主,同时接受上级社会治安综合治理领导机构的指导。

(三)层层建立社会治安综合治理目标管理责任制。地方各级党政领导之间,党政领导和各部门、各单位之间,厂长、经理和车间、班组负责人之间,都要层层签订责任书。要把社会治安综合治理的任务、要求分解为若干具体目标,制定出易于执行检查的措施,建立严格的检查监督制度、定量考核制度和评比奖惩制度。要把社会治安责任制同经济责任制、领导任期责任制结合起来,将社会治安综合治理目标管理同责任人的政治荣誉、政绩考核、职级提升和经济利益挂钩,同评选文明单位、企业晋级挂钩,实行社会治安综合治理一票否决权制。落实责任制要定期检查考核,每年进行认真的总结评比,表彰先进,形成比学赶帮的热潮。但要防止形式主义和不切实际的高指标,避免出现立案不实、弄虚作假等错误做法。

(四)加强分类指导,把推广典型经验和重点治理结合起来。各级党委和政府要结合实际情况,尽快作出规划,分期分批地把各种类型的社会治安综合治理经验逐步推广,扩大覆盖面,使全国的社会治安综合治理工作向前大大推进一步。要重视理论研究,及时把实践经验上升为理性认识,加强对综合治理工作的理论指导。

重点治理是迅速改变局部地区治安面貌的有效方法。从全国来看,大中城市、沿海开放地区和交通干线是综合治理的重点,要先行整治。就各地来说,要集中力量整顿治理好秩序混乱、治安问题较多的少数地区、街道、乡镇、村落、交通线段和单位。

(五)下功夫把社会治安综合治理的各项措施落实到基层。社会治安综合治理的各项措施能否落实到基层,县市、乡镇、街道的党政领导负有特殊重要的责任。社会治安综合治理措施落实到基层的主要标志是:基层党政领导重视,建立了社会治安综合治理工作的议事制度;社会治安综合治理的领导机构和办事机构健全,有专人办事;建立了一定形式的目标管理责任制;有群防群治队伍和严密的防范措施;群众充分发动起来,敢于同违法犯罪作斗争;犯罪和社会治安问题较少,对发生的问题能及时处置。

六、充分发挥政法部门特别是公安机关在社会治安综合治理中的职能作用。

政法部门是人民民主专政的重要工具,是惩治违法犯罪,维护社会治安的专门机关。加强社会治安综合治理,对政法部门的要求不是降低了,而是更高了。

政法部门在社会治安综合治理中的主要任务是:(一)当好党委和政府领导社会治安综合治理工作的参谋和助手,带头贯彻执行党委和政府的总体部署,积极参加党委和政府统一组织的社会治安综合治理活动,并经常向党政领导和社会治安综合治理领导机构反映情况,报告工作,提出建议。(二)依法严厉打击严重危害社会治安的刑事犯罪分子,及时查处、取缔“六害”活动,坚决防止境外黑社会势力和丑恶现象侵入。(三)严格各项治安管理措施,检查指导各单位内部的安全保卫工作和基层治保组织、群防群治队伍的工作。(四)采取各种措施改变就案办案现象,尽力扩大办案的社会效果,并积极提出司法建议和检察建议,协助有关单位总结经验教训,健全管理制度,完善防范机制。(五)结合各自业务工作,开展法制宣传教育和维护国家安全的教育。(六)公安机关、检察院、法院都要积极配合司法行政部门,大力加强劳改、劳教工作,提高改造质量,并做好对轻微违法犯罪人员和刑满释放、解除劳教人员的帮教工作。(七)加强对人民调解工作的组织领导,依法积极疏导、调处各种民间纠纷,化解社会矛盾。(八)研究刑事犯罪和社会治安问题增多的原因及其规律,提出有效的对策。

公安机关是社会治安工作的主管部门,在社会治安综合治理中居于特别重要的地位。公安机关应当根据加强社会治安综合治理的需要,适当调整工作重点、警力部署和勤务制度,改进工作方法,用更多的人力和精力加强基层治安基础工作,以更好地发挥职能作用。

政法各部门都要重心下移,精简上层,充实基层,转变作风,为基层多办实事,大力加强公安派出所、人民法庭、法律服务所等政法基层组织建设。各级人民政府要尽量拿出一些经费,改进政法基层单位的装备,改善他们的工作条件和生活条件。

七、今年的工作重点。

今年要在全面加强社会治安综合治理各项工作,大力开展舆论宣传的同时,扎扎实实地着重抓好以下几项工作:(一)加强领导。调整和健全各级社会治安综合治理领导机构和办事机构,做到层层有人领导,层层有人办事,层层真抓实干。(二)制订规划。从省、自治区、直辖市到地、市、区、县,各级党委和政府都要制订出与“八五”计划相适应的落实社会治安综合冶理的五年计划和每年的实施方案。从今年起,一个市一个市、一个县一个县地抓落实,每年落实一部分市、县,力争到一九九五年底使人多数市、县社会治安综合治理的各项措施得到基本落实。(三)重点治理。各地都要在调查研究的基础上,排查出治安问题多的地区和单位,集中力量进行重点治理整顿,务使这些地方尽快改变面貌。(四)建设基层。对城乡少数瘫痪半瘫痪的基层党政组织,下决心进行彻底整顿,并落实各项综合治理措施。(五)群防群治。在尽可能多的地区和单位组织好群防群治队伍,制订和落实各种形式的目标管理责任制。首先要把机关、企事业单位内部的责任制落实好,使单位内部的治安问题明显减少。(六)制定法规。建议全国人大常委会就加强社会治安综合治理作出决定。各省、自治区、直辖市尚未制定社会治安综合治理法规的要在今年内制定出来,付诸实施。(七)评选先进。各省、自治区、直辖市都要在扎扎实实工作的基础上,于今年底开展一次评比社会治安综合治理先进单位和先进个人的活动,并召开表彰大会。明年在全国范围开展评比活动,并在适当时候召开全国社会治安综合治理先进单位先进个人表彰大会。

社会治安综合治理是一项艰巨复杂的系统工程,也是全国人民十分关注的一件大事。它直接关系着国家的长治久安,关系着我国社会主义现代化建设第二步战略目标的顺利实现。各级党委和政府要带领广大党员、干部和群众,上下一心,共同努力,扎实工作,为创造我国良好的社会治安秩序,做出更大的努力。

One thought on “Decision concerning Strengthening Comprehensive Public Order Governance

    Latest Updates | China Copyright and Media said:
    August 10, 2013 at 9:37 am

    […] Decision concerning Strengthening Comprehensive Public Order Governance (Central Committee, State Council – 1991) […]

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