Implementation Regulations concerning Implementing the “Some Opinions Concerning Deepening Press, Publications, Radio, Film and Television Sector Reform”

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The Central Committee Secretariat and State Council Secretariat have transmitted the CCP Central Propaganda Department, State Administration of Radio, Film and Television and General Administration of Press and Publications Some Opinions Concerning Deepening Press, Publications, Radio, Film and Television Sector Reform” (hereafter simply named “Some Opinions”). At present, the nationwide press and publications sector is deeply studying the important “July 1st” speech of General Secretary Jiang Zemin, and bearing in mind the larger picture of press and publications work and the requirements of the “Three Represents”, deepening press and publications sector reform, and earnestly studying and implementing the “Some Opinions”, which is of importance in guaranteeing that reform persists in the correct orientation and obtaining even quicker development. On the basis of the requirements of the Centre, hereby, the implementation regulations for implementing the “Some Opinions” in the press and publications sector are formulated.

I, Persisting in the correct guiding ideology, policies and principles

Deepening reform must raise high the great banner of Deng Xiaoping theory, have the important “Three Represents” thought as guidance, persist in the basic Party line, persist in liberating thoughts, seeking truth from facts and everything starting from reality. Reform must fully consider our country’s national circumstances, fully consider the requirements for constructing the spiritual civilization, follow the Socialist market economy rules and the inherent requirements of press and publications sector development, learn from successful reform experiences in the economic sphere and foreign beneficial methods, benefit fully giving rein to the vigour of press and publications workers, benefit the stimulation of the flourishing and healthy development of undertakings, benefit satisfying the popular masses’ daily increasing spiritual culture needs, even better serving the people, serving Socialism, and serving the larger picture of the work of the entire Party and the entire country.

Deepening reform must have development at the core, structural adjustment as the main line, further expand actual strength, strengthen vitality and raise competitiveness. It is necessary to vigorously take the initiative, expand strength, innovate deeply, and steadily move forward. Persisting in putting social interest first, realizing the integration of economic interest with social interest; persisting in stimulating structural adjustment and market integration and stimulating industrial optimization and upgrading and the expansion of benefits of scale with deepening reform. Transforming from a planned economic system to an economic system adapted to the Socialist market economy system, from fragmented operation to scale operation, from mainly quantitative expansion to mainly raising quality, marching on a path of press and publications sector development of Socialism with Chinese characteristics.

Deepening press and publications reform must persist in the principle of the Party spirit, and closely grasp the correct orientation. The press and publications sector both has common industry properties, and has ideological properties, it is both mass media and is the propaganda and ideological battlefield of the Party, it relates to national security and political stability, and carries an important social responsibility. Regardless of under whatever circumstances, its nature as the mouthpiece of the Party and the people cannot change, the fact that the Party manages the media cannot change, the fact that the Party manages cadres cannot change, and the correct public opinion orientation cannot change. It is necessary to guarantee the leadership of the Party over the press and publications sector, guarantee the macro-level control strength of the Party over the press and publications sector, persist in arming people with scientific theory, guiding people with correct public opinion, moulding people with noble spirits and inspiring people with excellent works.

II, Correctly grasping the overall requirements and basic structure of reform.

It is necessary to, through deepening reform, explore the establishment of macro-level management systems that guarantee Party leadership under new circumstances, with appropriate regulation and control and ordered operation, that stimulate development, achieve two levels of control at the central and provincial, autonomous region or municipal levels, united Party Committee leadership, that administrative press and publications department implement administrative management according to the law and realistically implement social supervision and management functions, that administrative management and social supervision and management cooperate with sector management, administrative management department functions are clarified, press and publications work units’ controlling and sponsoring departments’ duties are clear. Exploring the establishment of micro-level operational mechanisms guaranteeing the correct orientation, that are rich in management vitality, completing leadership systems integrating Party Committee leadership with legal person governance structures, organizational structures with independent editorial business and operational business, and operations management models suited to market requirements and powerful in regulation and control. Exploring the establishment of legal and regulatory systems reflecting the characteristics of the press and publication sector and adapted to the general requirements of legal system construction and relevant international rules, completing law enforcement supervision mechanisms, strengthening law enforcement teams, raising law enforcement levels, where there is a law, it must be relied upon, law enforcement must be strict and violations of law must be investigated. Exploring the establishment of market environments disseminating healthy spiritual culture products, stimulating optimal resource allocation, with competition and order, adjusting market structures, completing market systems, standardizing market order, stimulating interconnection and interaction, shaping effective mechanisms that are fair and competitive, ensure the survival of the fittest, that benefit excellent spiritual cultural products to occupy the market. Exploring the establishment of open structures attracting foreign excellent culture and advanced technology, resisting degenerate culture, using both markets and both sorts of resources well, persisting in broadly opening up by giving the first place to ourselves, taking what we can use, determining quantities and distribution, in a purposeful, measured and selective manner.

III, Concerning grouping construction

Group construction must deal well with the relationship between points and surfaces, and completely let our country’s press and publications sector flourish. Nationwide trial groups (hereafter simply named “trial groups”) must stand on system innovation and mechanism innovation, strive to raise the core competitiveness of groups, and must use all sorts of beneficial conditions to expand and strengthen, in order to provide beneficial experiences for deepening reform and mustering the sector to move forward overall; other publishing work unit must according to the reality of each, explore reform and development paths suited to the characteristics of each.

The General Administration of Press and Publications and relevant provincial and municipal press and publications bureaus must assist Party Committee propaganda departments in promoting further deepening reform of already approved newspaper sector groups. It is necessary to, on the basis of deepening investigation and research and scientific elaboration, again approve the establishment of some newspaper groups. Newspaper groups belong to the undertaking nature, and implement a publishing committee (editorial committee) responsibility system under the leadership of Party Committees (Party Groups), where the Party Committee (Party Group) secretary concurrently acts as director. Newspaper groups shall earnestly conduct management system reform and operational mechanism transformation; strengthen public opinion influence and comprehensive competitiveness.

Strengthening macro-level guidance and policy support to the Guangdong Provincial Publishing Group, the Shanghai Century Publishing Group, the Beijing Publishing Group, the Liaoning Publishing Group, the China Science Publishing Group and the Shandong Publishing Group, in order to provide fair and necessary conditions for them to raise their competitiveness. After the formation of local groups, it is necessary to implement separation of government and undertaking, and press and publications management departments implement administrative supervision and management tasks. Publishing groups must have capital and business as links, and on the basis of clear demarcations of property rights, clarify asset operation responsibilities, and strive to conduct management system and operational mechanism innovation. Publishing groups belong to the undertaking nature, and implement a management board responsibility system under the leadership of Party Committees (Party Organizations), where Party Committee (Party Organization) secretary also chair the board of management. Selecting and vigorously fostering and supporting more than ten famous publishers and large publishers to become trial points for marching an intensive development path. Encouraging, guiding and helping these publishers to further optimize publishing structures, rationally allocate resources, give rein to their brand superiority, vigorously conduct scale expansion, and expand and strengthen as quickly as possible.

On the basis of continuing to grasp trial work in the Jiangsu New China Publishing Group, the Guangdong New China Publishing Group, the Sichuan New China Publishing Group and the Shanghai New China publishing Group, again approving the formation of some distribution groups in the near future, beginning to shape a nationwide publications sales system with competition between the East, the West, the South, the North, and the Centre, that is mutually stimulating, and conform to market operation rules. Distribution groups belong to the enterprise nature, and shall conduct formation according to modern enterprise systems, perfect legal person governance structures, establish scientific policymaking procedures, clarify property rights, have clear responsibilities, and guarantee the value maintenance and increase of assets. After systemic transformation, the post of publishing group board chair is to be concurrently held by the Party Committee chairman. Distribution groups must have book publishing as their core business, concurrently engage in distribution business of other publications, forcefully move cross-regional operation forward, as quickly as possible become regional and national publications sales centres, and may enjoy export operation powers with approval.

It is necessary to strengthen guidance over the reform of the China Audiovisual Publishing House, the China International Television General Company, the Shanghai Audiovisual Publishing House, the Pacific Audiovisual Company and the Beijing Hope Electronic Publishing House, and assist them in accelerating operational management transformation, raising the exploitation capacity and market share of originally-created programmes and products with indigenous intellectual property rights, strengthening the comprehensive operation capacity of many kinds of media, work units meeting conditions may cooperate and operate jointly with State-owned large-scale audiovisual product hardware enterprises in many ways, those with mature conditions may conduct merging or reorganization into some audiovisual groups with permission.

Constructing the “China Periodical Matrix”, expanding the construction strength of branded periodicals. It is necessary to foster a batch of periodicals that have a demonstration function in correcting grasp public opinion, shaping scientific effective management mechanisms and operational mechanisms, strengthening periodical team construction, strictly observing propaganda publishing discipline, having a well-rounded social interest and economic interest, etc., Through constructing the “China Periodical Matrix”, raising our country’s periodicals’ overall publishing level, creating branded periodicals having global influence. It is necessary to earnestly perform trial work of periodical groups with famous periodicals and large periodicals as “leaders”. At present, famous periodicals and large meeting conditions that apply to form periodical groups must conduct vigorous inspection.

Publishing work units outside of trials group may conduct cooperation and joint operation; those with mature conditions may conduct merger and reorganization with approval.

IV, Concerning concurrent multimedia operations

Trial newspaper groups, publishing groups, periodical groups and audiovisual groups, as well as intensively developing famous publishers and large publishers, may concurrently operate business in newspapers, periodicals, books, audiovisual products, electronic publications and network publications. To implement concurrent multimedia operations, the integration of stored resources shall be stressed, and chaotic setups avoided. Standards for the adjustment of publishing enterprises that have been cancelled or closed down because of not conforming to conditions in curing fragmentation and curing overflow, are mainly used to support the multimedia operation of relevant trial groups and trial work units. Vigorously supporting focus groups and focus work units to merge, reorganize or jointly operate with other media operation work units across different media. Reports of  mergers, reorganization, joint operation and applications for establishment of new media operation work units, are to be reported to the Central Propaganda Department and the General Administration of Press and Publications for approval after examination and verification by the provincial-level press and publications bureau of that locality and the agreement of the local Party Committee and government of that locality.

V, Concerning cross-regional operations

Vigorously encouraging trial publishing groups, periodical groups, audiovisual groups, distribution groups and intensively developing famous publishers and large publishers to conduct cross-regional business, central and provincial-level newspaper groups meeting conditions may implement cross-regional operations with approval. Cross-region operation shall be mainly realized through methods of merging and reorganization and joint operation. All organs requiring the establishment of brand offices, must undergo examination and verification by the provincial-level press and publications bureau of their locality and report to the Central Propaganda Department and the General Administration of Press and Publications. Branch organs established across regions must all accept the localized management of the press and publications bureau of their locality, trial groups must realistically bear management responsibility over the publication content and operation orientation of their subordinate work units. All levels’ press and publications management organs must provide good environments and conditions for cross-regional operation and may not in any way erect regional barriers.

VI, Concerning expanding financial channels

The editorial business and operational business of trial newspaper groups, publishing groups, periodical groups, audiovisual and electronic publication groups and intensively developing famous publishers and large publishers shall be separated through structural setup, editorial departments are to undergo agreement of the controlling department of the group and report to the Central Propaganda Department and General Administration of Press and Publications for approval, and may be funded through the press and publications system. Trial publishing groups, audiovisual groups, electronic publication groups and intensively developing famous publishers and large publishers undergo agreement from the provincial-level press and publications management department, and report to the General Administration of Press and Publications for approval, and are permitted to attract capital from State-owned enterprise and undertaking work unit through programme cooperation methods, but must strictly limit this to only conduct this within approved programme, investors may not enter into editorial business.

The editorial departments of trial newspaper groups, publishing groups, periodical groups, audiovisual groups, electronic publishing groups and intensively developing famous publishers and large publishers, with General Administration of Press and Publications approval, may be set up as limited liability companies or stock-holding limited companies according to the principle of modern enterprise systems, and attract capital from State-owned enterprise and undertaking work units, groups and related publishing work units’ State-owned capital shall not be lower than 51%.

With Central Propaganda Department and General Administration of Press and Publications approval, trial distribution groups may attract State-owned capital, non State-owned capital and foreign capital, groups’ State-owned capital shall not be lower than 51%.

Printing groups attracting foreign capital must report to the General Administration of Press and Publications for approval.

At the same time as attracting capital and setting up limited liability companies or stock-holding limited companies, it is necessary to earnestly perform asset appraisal work according to relevant State regulations, realistically guarantee the national interest, and it is strictly prohibited to sell State-owned assets at low price or allocate them without compensation to individuals through methods such as contracting, shareholding, etc.

Other press and publications work unit are to execute the present regulations without exceptions.

VIII Concerning completing market systems

Utilizing modern market organization forms and operational models, accelerating the integration of the publications market, shaping a nationwide unified, open, competitive and orderly publications market system. Between distribution groups, it is necessary to build nationwide and multi-level publications sales networks according to modern enterprise system requirements, with capital as link, with interaction and communication in aspects of distribution business. It is necessary to use the spirit of reform to expand nationwide book market innovation strength, and let it give rein to an even larger function in letting publications markets flourish. Fully giving rein to the backbone function of the Xinhua bookstores, encouraging other State-owned channels and circulation enterprises to operate publications businesses, shaping fair and effective competition between State-owned circulation channels, strengthening State-owned assets’ control force over the publications market. Guiding and standardizing non-State-owned capital to enter the publications market, operate according to the law and participate in competition. Exploring the establishment of regional and nationwide copyright markets, advertising markets, information markets, science and technology markets, talent markets, etc. Perfecting market rules, standardizing market activities, strengthening market supervision and management.

Vigorously exploring chain operation models adapted to the development requirements of our country’s publishing sector’s development requirements, shaping multi-level and multi-model publications chain sales operation networks. Giving rein to the good brand effect of the Xinhua bookstores and the network superiority of being found all over towns and the country, smoothen property rights relationships, integrating stored assets, first and foremost realizing Xinhua bookstore chain operation in large cities and provincial capital cities, and progressively radiating and extending them into small cities, through special permission, pooling and other methods, attracting other economic elements’ bookshops meeting conditions to participate. Striving to achieve in about two years’ time, to establish large-scale publications chain retail operations headquarters in Beijing, Shanghai, Guangzhou, Shenyang, Ji’nan, Nanjing, Hangzhou, Chengdu, Xi’an, and other cities. Further expanding chain operation network point functions, with sales as basis, at the same time launching rental, consulting and other businesses, raising service levels and service quality.

VIII, Concerning primary and secondary education textbook publishing and distribution reform

Conducting primary and secondary education textbook publishing and distribution reform, is a requirement for implementing the strategy to “rejuvenate the country with science and education”, and raising the quality of citizens, and is also an important measure for deepening publications structural reform, adjusting product structures and realizing sustainable development. All provincial, autonomous region and municipal press and publications management departments must, under the leadership of provincial autonomous region and municipal governments, together with education, industry and commerce, pricing and other departments, introduce competition mechanisms, and earnestly do primary and secondary education textbook publishing and distribution tendering trials and overall dissemination work well. All provincial autonomous region and municipal administrative education management departments shall, on the basis of the provisions of the “Publications Management Regulations”, timely provide primary and secondary education textbook catalogues and authorized textbooks. All levels’ press and publications departments and related publishing, printing and distribution work units must, with an earnest attitude, participate in primary and secondary education textbook publishing and distribution reform, and on the basis of the book catalogue and authorized textbooks determined by the administrative education management department, make meticulous arrangements, and realistically do publishing, printing and distribution work well, guaranteeing that “books arrive before class, and no-one is without a copy”.

IX, Concerning implementing the “marching out” strategy

During the “10th Five-Year Plan” period, it is necessary to expand foreign-oriented focus publications publishing strength, a batch of foreign-oriented focus publishing projects must be purposefully arranged for all sorts of publications’ focus publishing planning in the “10th Five-Year Plan”, and it is especially necessary to purposefully arrange a batch of foreign-language publications and publications contrasting Chinese and foreign languages aimed at the demands of foreign readers. Relevant publishing management departments and publishing work units’ controlling departments shall give high regard to foreign-oriented focus projects listed in the national focus publications planning, and grant the necessary financial support.

With the approval of the Central Propaganda Department and the General Administration of Press and Publications, a small number of newspaper groups, publishing groups and periodical groups is selected to enter into cooperation with famous foreign media groups with standardized management, advanced technology, that are creditworthy and friendly to us.

It is necessary to adopt many kinds of methods such as cooperative publishing with foreign publishing and distribution organs, regional agencies or copyright trade, etc., to make our country’s excellent publications march towards the world in larger numbers and more quickly. It is necessary to support publishing work units meeting conditions to go abroad to set up publishing companies, encourage publishing and distribution work units meeting conditions to establish bookstores abroad, encourage branded periodical to adopt many kinds of methods to go abroad to set up periodicals. Organizing the Beijing International Book Exhibition well, and making it become one of the important publishing exhibitions in the world. It is necessary to organize influential and important international publishing exhibition participation work for focus localities well, and meticulously organize excellent publications’ participation, clarify themes and raise effects. Organizing foreign experts from the publishing world to come to our country and give lectures or conduct thematic deliberation, and regularly or irregularly organizing international publications business conferences.

X, Concerning completing legal and regulatory systems

It is necessary to formulate the necessary laws, regulations and rules, revise or abolish regulations and rules that are no longer suitable, with revision and rolling out “one law and four regulations (the “Copyright Law of the People’s Republic of China”, the “Publications Management Regulations”, the “Printing Sector Management Regulations”, the “Audiovisual Product Management Regulations” and the “Computer Software Protection Regulations” as basis, completing press and publications legal and regulatory systems, on the basis of the characteristics of the press and publications sector and strengthening social supervision and management, and on the basis of the World Trade Organization rules and our country’s government’s commitments involving press and publications. It is necessary to further perfect laws, regulations and rules concerning entry systems, professional qualifications, sector standards and market supervision and management and other aspects, on the basis of the requirements and principles of “one law and four regulations”. Expanding administrative law enforcement strength, realistically achieving that where there is a law, it must be followed, law enforcement must be strict, legal violations must be investigated, earnestly performing press and publications law and regulation propaganda, dissemination and training work, raising the legal system consciousness of management workers and professional personnel.

XI, Concerning utilizing high and new technology

All localities, all departments and all work units must give high regard to the influence and promotion of scientific and technological progress on the press and publications sector, must earnestly formulate science and technology progress development plans, and especially for digitalization and networking, it is necessary to expand input, introduction and training of talent and other measures through strengthening organizational leadership, accelerating the digitalization and networking progress of traditional publishing resources. In press and publications work unit editing, printing and distribution business dealings as well as enterprise and undertaking work unit operation management, digital statistics and information exchange, etc., computer management must be realized as quickly as possible. It is necessary to pay attention to following the newest technology for publications carriers, introduce, digest and indigenously exploit editions and forms suitable to our country’s readers. Forcefully spreading direct printing technology, striving to expand on-demand printing markets. Incessantly exploring electronic commerce and other publications trade forms. Further perfecting in-print publications cataloguing systems, strengthening management over publications’ book numbers, periodical numbers and version numbers, as well as bar codes, progressively using two-dimensional bar codes. Establishing and competing press and publications management information network systems, establishing electronic government, raising service efficiency.

XII, Concerning publishing work units’ internal reform

Press and publications work units must liberate thoughts, expand reform strength, completely and deeply move reform forward in three systems: human resources, labour and distribution, fully entre into competition mechanisms. Publishing undertaking work units must forcefully move appointment and employment systems for all personnel forward, publishing enterprises must perfect labour contract systems according to relevant State regulations, and shape mechanisms for personnel to be able to go in and out, management personnel to go up or down, and income distribution to increase or decrease., expanding encouragement strength for management personnel and professional backbones with outstanding achievements, pulling distribution differences open, exploring many kinds of methods for income distribution systems. Internal operational mechanism reform must put forth effort to strengthen innovative capacity, forcefully move informatized management forward. Press and publication enterprise and undertaking work units must all establish asset operation responsibility systems, and bear responsibility for State-owned asset value maintenance and increase. Publishing enterprises must progressively establish and perfect legal person governance structures, perfect collective policymaking structures, and establish systems that can trace individual responsibility. It is necessary to strengthen cost accounting and cost management, completely launch quality management, and it is especially necessary so strengthen sales organs and sales personnel management. It is necessary to give high regard to the management, protection and rational use of intangible assets.

XIII, Concerning talent training and team construction

It is necessary to earnestly summarize and continue to forcefully move forward press and publication “cross-century talent project” construction, and through many kinds of methods, conducting on-the job training for excellent talents. Organizing the selection of professional backbones from the nationwide press and publications system to go abroad for observation and training, at present it is necessary to focus on fostering a batch of specialist talents that know press and publication management business very well, and grasp international trade rules. Further strengthening press and publications cadre education and training work and training base construction, perfecting press and publication on-the-job training systems, and post certification systems. Implementing specialist publishing technological personnel professional qualification systems, establishing professional qualification systems for personnel at important posts in the press and publications sector. It is necessary to realistically strengthen all levels’ press and publications management department official team construction, implement cadre competition appointment, announcement before tacking office, rotation, exchange and other systems, strengthening the fostering of reserve cadres.

XIV, Concerning forcefully supporting the press and publications undertakings in the Western regions

Press and publications work in the Western regions and especially the border and ethnic minority regions bears a special political responsibility, which relates to national security and social stability, input must be expanded, and relevant economic policies must be further perfected. Western regional and especially Western ethnic regional Party Committees and governments are suggested to further expand support strength to the ethnic press and publications sector, and on the basis of the reality of that location, guarantee that all financial inputs into that regions ethnic press and publications sector are raised relatively largely on the basis of stable increase. It is necessary to organize the nationwide press and publications system to expand mutual assistance strength, encourage cooperative publishing, reciprocal cooperation, fully giving rein to the resource superiority of ethnic minority regions and the financial, management and technological superiority of inland press and publications work units. Western and especially border ethnic minority region press and publications systems must also deepen reform, and strive to shape self-development and self-accumulation capacity. It is necessary to further enrich and perfect the use and management methods of ethnic publishing funds.

XV, Concerning continuing to eliminate fragmentation and eliminate overflow

It is necessary to deepen press and publications reform and further integrate doing well fragmentation and overflow elimination work, strictly prohibiting the purchasing and selling of book numbers, periodical numbers and edition numbers, rectifying social and cultural life-type periodicals, “sweeping away pornography”, “striking illegality” and rectifying the printing sector” and other work, according to the development plans and macro-level distribution in the “10th Five-Year Plan” period for the press and publications sector, implementing structural adjustment of the press and publications sector, using the thinking of reform to grasp putting things in order, grasp rectification, and grasp supervision and management. Determinedly and seriously investigating and punishing activities of abandoning final publication examination powers and press and publications work units operational management powers; adjusting newspaper and periodical structures, supporting science and technology-type periodical development, putting in order social and cultural life-type periodicals, it is necessary to strictly investigate and prosecute periodicals violating regulations and violating discipline. On the basis of focusing on grasping putting in order and rectifying the printing sector, further strengthening management over printing and reproduction industries, and perfecting management systems and management methods.

XVI, Concerning strengthening organizational leadership over reform

The General Administration of Press and Publications and relevant provincial-level press and publications management departments must deeply investigate and research, focus on grasping the development situation, development problems of trial newspaper groups, publishing groups, distribution groups, periodical groups, audiovisual groups, electronic publication groups and intensively developing famous publishers and large publishers, and timely guide them and timely adjust relevant policies, providing a desirable external environment to stimulate their development, expansion and strengthening.

It is necessary to fully give rein to the commercial decision-making power of trial work units. In all cases where trial work units’ reform measures break through present policies, reporting for approval formalities must be implemented according to procedure, without permission, they are not permitted to go ahead on their own accord.

Implementing trend management over trial work units. If trial work units’ operations do not achieve the requirements of reform after a period of time, or problems of violating discipline and violating regulations appear, either their trial work unit qualifications will be revoked or their preferential policies will be partially stopped with consideration of their situation.

To establish trial groups, after agreement by the local Party Committee or government, it must be reported to the Central Propaganda Department and General Administration of Press and Publications for approval.

All provincial autonomous region and municipal press and publications bureaus must, according to the “Some Opinions” and the spirit of these Implementation Regulations, revise and perfect reform plans, and formulate work plans to implement the “Some Opinions”. After reform plan formulation is complete, it is to be reported to the General Administration of Press and Publications.

A catalogue of eight supplementary documents to the “Implementation Regulations”

1, Some Opinions concerning Press and Publications Group Construction (XCB No. (2002)714)

2, Implementing Opinions Concerning Standardizing Press and Publications Sector Funding Activities (XCB No. (2002)715)

3, Some Opinions Concerning Press and Publications Cross-Regional Operations (XCB No. (2002)716)

4, Implementing Rules for Press and Publications Sector Leading Position Post Qualifications (XCB No. (2002)717)

5, Provisional Regulations for Specialist Publishing Technology Personnel Qualifications Management (XCB No. (2002)718)

6, Notice Concerning Further Strengthening Social, Cultural and Life-Type Newspaper and Periodical Management (XCB No. (2002)719)

7, Provisional Regulations on Printing Sector Manager Qualification Conditions (9 November 2001, People’s Republic of China General Administration of Press and Publications Decree No. 15)

8, Provisional Regulations on Establishing Foreign-Invested Printing Enterprises (29 January 2002), People’s Republic of China General Administration of Press and Publications and Ministry of Trade and Economic Cooperation Decree No. 16)

新闻出版总署关于贯彻落实《关于深化新闻出版广播影视业改革的若干意见》的实施细则

中共中央办公厅、国务院办公厅转发了《中央宣传部、国家广电总局、新闻出版总署关于深化新闻出版广播影视业改革的若干意见》(以下简称《若干意见》)。当前,全国新闻出版行业正在深入学习江泽民总书记的“七一”重要讲话,以“三个代表”的要求统揽新闻出版工作的全局,深化新闻出版业的改革,认真学习、贯彻《若干意见》,对确保改革坚持正确的方向,取得更快的发展至关重要。根据中央的要求,特制定新闻出版业贯彻落实《若干意见》的实施细则。
一、坚持正确的指导思想和方针原则
深化改革必须高举邓小平理论的伟大旗帜,以“三个代表”重要思想为指导,坚持党的基本路线,坚持解放思想,实事求是,一切从实际出发。改革要充分考虑我国国情,充分考虑精神文明建设需要,遵循社会主义市场经济规律和新闻出版业发展的内在要求,借鉴经济领域改革的成功经验和国外的有益做法,有利于充分发挥新闻出版工作者的积极性,有利于促进事业的繁荣健康发展,有利于满足人民群众日益增长的精神文化需求,更好地为人民服务,为社会主义服务,为全党全国的工作大局服务。
深化改革必须以发展为主题,以结构调整为主线,进一步壮大实力,增强活力,提高竞争力。要积极主动,加大力度,深入创新,稳步推进。坚持把社会效益放在首位,实现经济效益与社会效益的统一;坚持以深化改革促进结构调整和市场整合,促进产业优化升级和规模效益增长。从适应计划经济体制向适应社会主义市场经济体制转变,从分散经营向规模经营转变,从数量扩张为主向素质提高为主转变,走出一条有中国特色社会主义的新闻出版业发展之路。
深化新闻出版改革必须坚持党性原则,牢牢把握正确导向。新闻出版业既有一般行业属性,又有意识形态属性,既是大众传媒,又是党的宣传思想阵地,事关国家安全和政治稳定,负有重要社会责任。无论在什么情况下,党和人民喉舌的性质不能变,党管媒体不能变,党管干部不能变,正确的舆论导向不能变。要确保党对新闻出版业的领导,确保国家对新闻出版业的宏观控制力,坚持以科学的理论武装人,以正确的舆论引导人,以高尚的精神塑造人,以优秀的作品鼓舞人。
二、正确把握改革的总体要求和基本格局
要通过深化改革,探索建立新形势下保证党委领导,调控适度、运行有序、促进发展的宏观管理体制,做到中央和省、自治区、直辖市两级调控,党委统一领导,新闻出版行政部门依法实施行政管理,切实履行社会监管职能,行政管理、社会监管与行业管理相互配合,行政管理部门职能明确,新闻出版单位主管、主办部门职责清晰。探索建立保证正确导向、富有经营活力的微观运行机制,健全党委领导与法人治理结构相结合的领导体制,编辑业务与经营业务相对独立的组织结构,适应市场需求、调控有力的经营管理模式。探索建立体现新闻出版业特点,适应法制建设总体要求和有关国际规则的法律法规体系,健全执法监督机制,加强执法队伍,提高执法水平,有法必依,执法必严,违法必究。探索建立传播健康精神文化产品,促进资源优化配置,竞争、有序的市场环境,调整市场布局,健全市场体系,规范市场秩序,促进互联互通,形成公平竞争、优胜劣汰,有利于优秀精神文化产品占领市场的有效机制。探索建立吸收国外优秀文化和先进技术,抵御腐朽文化,用好两个市场、两种资源的开放格局,坚持以我为主、为我所用,确定总量和布局,有目的、有步骤、有选择地扩大开放。
三、关于集团化建设
集团建设要处理好点和面的关系,全面繁荣我国新闻出版事业。全国试点集团(以下简称“试点集团”)要立足于体制创新和机制创新,努力提高集团的核心竞争力,要利用好各种有利条件做大做强,为深化改革提供有益的经验,带动全行业整体推进;其他出版单位要根据各自实际,探索适合自身特点的改革发展的路子。
新闻出版总署和有关省、市新闻出版局要协助党委宣传部门推动已批准的报业集团进一步深化改革。要在深入调研,科学论证的基础上,再批准建立若干家报业集团。报业集团属于事业性质,实行党委(党组)领导下的社委会(编委会)负责制,党委(党组)书记兼任社长。报业集团应认真进行管理体制改革和运行机制的转换,增强舆论影响力和综合竞争力。
加强对广东省出版集团、上海世纪出版集团、北京出版社出版集团、辽宁出版集团、中国科学出版集团和山东出版集团的宏观指导和政策支持,为其提高竞争力提供公平和必要的条件。地方出版集团组建后,要实行政事分开,新闻出版管理部门行使行政监管职能。出版集团要以资本和业务为纽带,在清晰界定产权的基础上,明确资产经营责任,着力进行管理体制和运行机制的创新。出版集团属事业性质,实行党委(党组)领导下的管委会负责制,党委(党组)书记兼管委会主任。选择并积极培育和扶持十余家名社、大社作为走内涵式发展道路的试点。鼓励、指导并帮助这些出版社进一步优化出版结构,合理配置资源,发挥品牌优势,积极进行规模扩张,尽快做大做强。
在继续抓好江苏新华发行集团、广东新华发行集团、四川新华书店集团和上海新华发行集团试点工作的基础上,近期再批准组建若干家发行集团,初步形成东西南北中相互竞争、相互促进,符合市场运行规律的全国出版物营销体系。发行集团属企业性质,应按照现代企业制度进行组建,完善法人治理结构,建立科学决策程序,产权明晰,责任明确,保证资产的保值和增值。改制后的发行集团董事长由党委书记兼任。发行集团要以图书发行为主业,兼营其他出版物的发行业务,大力推进跨地区经营,尽快成为区域性或全国性的出版物批销中心,经批准可享有出口经营权。
对中国录音录像出版总社、中国国际电视总公司、上海声像出版社、太平洋影音公司和北京希望电子出版社的改革要加强指导,帮助他们加快经营机制转换,提高原创节目、自主知识产权产品的开发能力和市场占有率,增强多种媒体综合经营的能力,有条件的单位可与国有大型视听产品的硬件企业进行多种形式的合作、联营,条件成熟的经批准可以进行重组,组建若干家音像集团。
建设“中国期刊方阵”,加大品牌期刊的建设力度。要努力培育一批正确把握舆论导向,形成科学有效管理机制和运行机制,加强期刊队伍建设,严格遵守宣传出版纪律,社会效益和经济效益俱佳等方面起示范作用的期刊。通过建设“中国期刊方阵”,提高我国期刊整体出版水平,创出具有世界影响的名牌期刊。要认真做好以名刊、大刊为“龙头”的期刊集团试点工作。当前,对具备条件的申请组建期刊集团的名刊、大刊要进行积极考察。
试点集团以外的出版单位,可进行合作与联营,条件成熟的经批准,可进行兼并重组。
四、关于多媒体兼营
试点报业集团、出版集团、期刊集团、音像集团和内函式发展的名社、大社,经批准,可兼营报纸、期刊、图书、音像制品、电子出版物和网络出版业务。实行多媒体兼营,应着重于存量资源的整合,避免乱铺摊子。在治散治滥中撤销或停办不符合条件的出版单位调整出来的指标,主要用于支持有关试点集团及试点单位的多媒体经营。积极支持有关试点集团和试点单位与其他媒体经营单位进行跨媒体的兼并、重组和合作联营。有关兼并、重组、联营及申请成立新的媒体经营单位的报告,经所在地省级新闻出版局审核并经地方党委和政府同意后,报中央宣传部和新闻出版总署批准。
五、关于跨地区经营
积极鼓励试点出版集团、期刊集团、音像集团、发行集团和内涵式发展的名社、大社进行跨地区经营,有条件的中央及省级报业集团经批准,可实行跨地区经营。跨地区经营应主要通过兼并重组、合作联营的方式实现。确有需要成立分支机构,须经所在地省级新闻出版局审核并报中央宣传部和新闻出版总署批准。跨地区设立的分支机构,都要接受所在地新闻出版管理部门的属地管理,试点集团要切实承担对所属单位出版物内容和经营方向的管理职责。各级新闻出版管理机关要为跨地区经营提供良好的环境和条件,不得以任何形式搞地区封锁。
六、关于拓宽融资渠道
试点报业集团、出版集团、期刊集团、音像集团、电子出版集团和内涵式发展的名社、大社的编辑业务和经营业务应从机构设置上分开,编辑部门经集团主管部门同意并报中央宣传部和新闻出版总署批准,可在新闻出版系统融资。试点出版集团、音像集团、电子出版集团和内涵式发展的名社、大社经省级新闻出版管理部门同意,并报新闻出版总署批准,可以项目合作的方式吸收国有企事业单位的资本,但必须严格限制在经批准的项目内进行,投资方不得介入编辑业务。
试点报业集团、出版集团、期刊集团、音像集团、电子出版集团和内涵式发展的名社、大社的经营部门,经新闻出版总署批准,可按现代企业制度的原则组建成有限责任公司或股份有限公司,吸纳国有企事业单位的资本,集团和有关出版单位的国有资本应不低于51%。
经中央宣传部和新闻出版总署批准,试点发行集团可吸收国有资本、非国有资本和境外资本,集团国有资本应不低于51%。
印刷集团吸收境外资本须报经新闻出版总署批准。
在吸纳资金和组建有限责任公司或股份有限公司时,要认真按照国家有关规定,做好资产评估工作,切实保障国家权益,严禁以承包、持股等方式将国有资产低价出售或无偿分配给个人。
其余新闻出版单位一律按现行规定执行。
七、关于健全市场体系
运用现代市场的组织形式和营销方式,加快对出版物市场的整合,形成全国统一、开放、竞争、有序的出版物市场体系。发行集团之间要按照现代企业制度的要求,以资本为纽带,在发行业务方面互联互通,构建全国性、多层次的出版物批销网络。要用改革的精神加大全国书市的创新力度,为繁荣出版物市场发挥更大的作用。充分发挥新华书店的骨干作用,鼓励其他国有渠道和流通企业经营出版物业务,形成国有流通渠道之间的公平、有效竞争,增强国有资本对出版物市场的控制力。引导和规范非国有资本进入出版物市场,依法经营,参与竞争。探索建立区域性或全国性的版权市场、广告市场、信息市场、科技市场和人才市场等。完善市场规则,规范市场行为,加强市场监管。
积极探索适合我国出版业发展需要的连锁经营模式,形成多层次、多业态的出版物连锁经营网络。发挥新华书店的良好品牌效应和遍布城乡的网络优势,理顺产权关系,整合存量资产,在大城市和省会城市首先实现新华书店的连锁经营,并逐步向中小城市辐射和延伸,通过特许和加盟等形式,吸纳有条件的其他经济成份的书店参加。力争用两年左右的时间,在北京、上海、广州、沈阳、济南、南京、杭州、成都、西安等地建立大型的出版物连锁经营总部。进一步拓展连锁经营网点的功能,以销售为基础,同时开展租赁、咨询等业务,提高服务水平和服务质量。
八、关于中小学教材出版发行改革
进行中小学教材出版发行体制改革,是实施“科教兴国”战略,提高国民素质的需要,也是深化出版体制改革,调整产品结构,实现可持续发展的重要措施。各省、自治区、直辖市新闻出版管理部门要在省、自治区、直辖市政府的领导下,会同教育、工商、物价等部门,引进竞争机制,认真做好中小学教材出版发行中的招标试点及全面推广工作。各省、自治区、直辖市教育行政管理部门应根据《出版管理条例》规定,及时提供中小学教材用书目录和经审定的课本。各级新闻出版管理部门和有关的出版、印刷和发行单位要以认真负责的态度参与中小学教材出版发行改革,根据教育行政管理部门确定的用书目录和审定的课本,精心安排,切实做好出版、印刷和发行工作,确保“课前到书,人手一册”。
九、关于实施“走出去”战略
在“十五”期间,要加大外向型重点出版物的出版力度,各类出版物的国家“十五”重点出版规划都要有目的地安排一批外向型重点出版工程,特别是要针对海外读者的需求,有目的地安排一批外文或中外文对照的出版物。对列入国家重点出版物规划中的外向型重点出版工程,有关出版管理部门及出版单位主管部门应予高度重视,并给予必要的资金支持。
经中央宣传部和新闻出版总署批准,选择少数试点报业集团、出版集团、期刊集团与境外管理规范、技术先进、资信可靠、对我友好的知名媒体集团进行合作。
要采取与国外出版发行机构合作出版、区域代理或版权贸易等多种方式,使我国的优秀出版物更多更快地走向世界。要扶持具备条件的出版单位到境外创办出版公司,鼓励有条件的出版发行单位到境外设立书店,鼓励名牌期刊采取多种形式到境外办刊。组织好北京国际图书博览会,使之成为世界上重要的出版物展览活动之一。要有重点地组织好有影响的重要国际出版物展览的参展工作,精心组织优秀出版物参展,明确主题,提高效果。组织境外出版界专家到我国讲学或进行专题研讨,定期或不定期地举办国际出版业务研讨会。
十、关于健全法规体系
要根据新闻出版业的特点和加强社会监管的需要,根据世界贸易组织的规则和我国政府对涉及新闻出版业的承诺,制定必要的法律、法规和规章,修改或废止不相适应的法规和规章,以修订出台的“一法四条例”(《中华人民共和国著作权法》、《出版管理条例》、《印刷业管理条例》、《音像制品管理条例》和《计算机软件保护条例》)为基础,健全新闻出版法规体系。要根据“一法四条例”的要求和原则,进一步完善准入制度、执业资格、行业规范和市场监管等方面的法规和规章。加大行政执法的力度,切实做到有法必依,执法必严,违法必究,认真做好新闻出版法律、法规的宣传、普及和培训工作,提高管理工作者和从业人员的法制意识。
十一、关于运用高新技术
各地区、各部门、各单位要高度重视科技进步对新闻出版业的影响和推动,要认真制定科技进步,特别是数字化、网络化发展规划,要通过加强组织领导、加大投入引进并培训人才等措施,加快传统出版资源的数字化和网络化进程。新闻出版单位的编辑、印制和发行的业务处理以及企事业单位的经营管理、数据统计和信息交流等,都要尽快实现计算机管理。要注意跟踪出版载体的最新技术,引进、消化并自主开发适合我国读者的版本和格式。大力推广直接印刷技术,努力开拓按需印刷市场。不断探索电子商务等出版物交易形式。进一步完善出版物在版编目系统,加强对出版物书号、刊号、版号以及条码的管理,逐步推行二维条码。建立、健全新闻出版管理信息网络系统,建立电子政府,提高服务效率。
十二、关于出版单位内部改革
新闻出版单位要解放思想,加大改革的力度,全面、深入地推进人事、劳动、分配三项制度改革,充分引入竞争机制。出版事业单位要大力推进全员聘用制,出版企业要依照国家有关规定,完善劳动合同制,形成职工能进能出、管理人员能上能下、收入分配能增能减的机制,加大对有突出业绩的管理人员、业务骨干的激励力度,拉开分配差距,探索多种形式的收入分配制度。内部经营机制改革要着力于增强创新能力,大力推进信息化管理。新闻出版的企事业单位都要建立资产经营责任制,承担国有资产的保值增值责任。出版企业要逐步建立与完善法人治理结构,完善集体决策制度,建立可追溯个人责任的制度。要加强成本核算和成本管理,全面开展质量管理,特别要加强营销机构和营销人员管理。要重视无形资产的管理、保护和合理利用。
十三、关于人才培养和队伍建设
要认真总结并继续大力推进新闻出版“跨世纪人才工程”建设,通过多种形式,对优秀人才进行在职培训。组织选拔全国新闻出版系统的业务骨干到国外考察培训,当前要重点培养一批熟悉新闻出版管理业务,掌握国际贸易规则的专门人才。进一步加强新闻出版干部教育培训工作和培训基地建设,完善新闻出版岗位培训制度、持证上岗制度。实行出版专业技术人员职业资格制度,建立新闻出版业重要岗位人员的执业资格制度。要切实加强各级新闻出版管理部门公务员队伍建设,实施干部竞争上岗、任前公示、轮岗和交流等项制度,加强对后备干部的培养。
十四、关于大力扶持西部地区的新闻出版事业
西部特别是边疆少数民族地区的新闻出版工作承担着特殊的政治任务,关系到国家安全和社会稳定,必须加大投入,进一步完善有关经济政策。建议西部特别是西部民族地区党委、政府,进一步加大对民族新闻出版业的支持力度,根据本地区实际,保证本地区民族新闻出版业各项经费投入在稳定增长的基础上有较大提高。要组织全国新闻出版系统加大对口支援的力度,鼓励合作出版,互惠合作,充分发挥少数民族地区的资源优势和内地新闻出版单位的资金、管理和技术优势。西部特别是边疆少数民族地区新闻出版系统也要深化改革,努力形成自我发展、自我积累的能力。要进一步充实和完善民族出版资金的使用和管理办法。
十五、关于继续治散治滥
要将深化新闻出版改革与进一步做好治散治滥工作、严禁买卖书号刊号和版号、整顿社会文化生活类报刊、“扫黄”“打非”和整顿印刷业等项工作紧密结合起来,按照“十五”期间新闻出版业的发展规划和宏观布局,对新闻出版业进行结构性调整,用改革的思路来抓治理、抓整顿、抓监管。对放弃出版物终审权和新闻出版单位经营管理权的行为坚决予以严肃查处;调整报刊结构,支持科技类期刊的发展,治理社会文化生活类报刊,对违规违纪的报刊要严肃查处。在重点抓好印刷业治理整顿的基础上,进一步加强对印刷、复制行业的管理,完善管理体制和管理手段。
十六、关于加强对改革的组织领导
新闻出版总署和有关的省级新闻出版管理部门要深入调研,重点掌握试点报业集团、出版集团、发行集团、期刊集团、音像集团、电子出版集团和内涵式发展的名社、大社的发展情况,发现问题及时引导并适时调整有关政策,为推进其发展、做大做强提供良好的外部环境。
要充分发挥试点单位的经营自主权。试点单位的各项改革措施凡突破现行政策的,必须按照程序履行报批手续,未经批准,不得自行其事。
对试点单位实行动态管理。试点单位如果经过一段时间的运行达不到改革的要求,或出现违纪违规问题,将视情况或取消其试点单位资格,或部分停止对其的优惠政策。
组建试点集团要经当地党委和政府同意后,报中央宣传部和新闻出版总署批准。
各省、自治区、直辖市新闻出版局要根据《若干意见》及本实施细则的精神,修订和完善改革的方案,并制定贯彻落实《若干意见》的工作方案。改革方案制定完成后报新闻出版总署。
《实施细则》八个配套文件目录
1、关于新闻出版业集团化建设的若干意见(新出办〔2002〕714号)
2、关于规范新闻出版业融资活动的实施意见(新出办〔2002〕715号)
3、关于新闻出版业跨地区经营的若干意见(新出办〔2002〕716号)
4、新闻出版行业领导岗位持证上岗实施办法(新出办〔2002〕717号)
5、出版专业技术人员职业资格管理暂行规定(新出办〔2002〕718号)
6、关于进一步加强社会文化生活类报刊管理的通知(新出办〔2002〕719号)
7、印刷业经营者资格条件暂行规定(2001年11月9日中华人民共和国新闻出版总署令第15号)
8、设立外商投资印刷企业暂行规定(2002年1月29日中华人民共和国新闻出版总署、对外贸易经济合作部令第16号)

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