Strengthening a Rule of Law Government Construction Work Plan

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On 11 November, SARFT issued the “SARFT Notice Concerning Printing and Distribution of the Strengthening a Rule of Law Government Construction Work Plan” to all provincial, autonomous region and municipal radio, film and television bureaus, the Xinjiang Production-Construction Corps Radio and Television Bureau, all SARFT-organ departments and bureaus and all directly subordinate work units, the Notice says that, in order to implement the spirit of the 5th Plenum of the 17th Party Congress, accelerate the construction of a socialist rule of law country, accelerate the construction of a legal system government and a service-oriented government, according to the “State Council Notice Concerning Strengthening Rule of Law Government Construction” (SC No. (2010)33), integrating the radio, film and television reality, the “SARFT Strengthening a Rule of Law Government Construction Work Plan”, has been deliberated and passed at the SARFT departmental meeting. Please integrate it in the work practice and earnestly implement it.

SARFT Strengthening a Rule of Law Government Construction Work Plan

Implementing the basic general plan of ruling the country according to the law, moving administration according to the law forward and constructing a rule of law government are revolutionary changes from the concepts to the methods in the Party’s governance of the country, and have an importance marking an epoch. Strengthening rule of law government construction is a necessary requirement for developing a socialist market economy, it is a basic guarantee for social fairness and justice, it is an important aspect of deepening political-legal system reform, it is an important move in government construction and the fight against corruption. Facing new tendencies, new tasks and new requirements, it is necessary to strengthen rule of law government construction penetrating through the whole progress of radio, film and television reform and development, making radio, film and television work completely have support of the law, completely have guarantees of the law, completely based on the supervision of the law. In order to implement the spirit of the 5th Plenum of the 17th Party Congress, strengthening radio, film and television rule of law government construction, on the basis of the “State Council Opinions Concerning Strengthening Rule of Law Government Construction” (SC No. (2010) 33) (hereafter simply named “Opinions”, and integrating the radio, film and television reality, this work plan is formulated.

I, General requirements and basic principles

1, General requirements. At present and in the following period, earnestly implementing the basic general plan of ruling the country according to the law, making implementing the requirements of the “Opinions” into an important work of the radio, film and television system, realistically strengthening a rule of law consciousness, persisting in the organic unification of the leadership of the Party, the people mastering their own affairs and ruling the country according to the law, establishing correct power views and career achievement views, completely moving administering according to the law forward, incessantly raising capacity to make policy according to the law, manage according to the law, conduct affairs according to the law, raising the credibility and implementation strength of administrative radio, film and television entities, constructing rule of law government, honest and clean government and service-oriented government, giving rein to an even larger function for the grand development and grand flourishing of radio, film and television.

2, Basic principles

– Persisting in the leadership of the Party, firmly establishing a rule of law consciousness, an order consciousness, a consciousness of the large situation and a duty consciousness. Through statutory procedures, transforming Party and State lines, general and specific policies effective in practice in the radio, film and television area into a legal system, and completely implement it in radio, film and television work.

– Persisting in implementing the scientific development view’s penetration of the rule of law government construction process. Persisting in taking people as the basis, safeguarding fairness and justice, making policy according to the law, managing according to the law, realistically guaranteeing and realizing the basic cultural rights of the popular masses, satisfying the daily increasing spiritual culture needs of the popular masses.

– Persisting in reform and innovation, serving the scientific development of radio, film and television, taking system and mechanism innovation as break-through points, vigorously and safely resolving new circumstances and new problems emerging in radio, film and television reform and development, abolishing systemic and mechanistic obstacles, creating a desirable rule of law environment for reform and development.

– Persisting in starting from reality, firmly grasping radio, film and television development characteristics and rules in government construction, accomplishing adaptation to the requirements of the radio, film and television reality, standardizing management and promoting the unification of flourishing and development.

– persisting in vigorously moving forward unification step by step, both considering every possible angle and coordinating planning, and also breaking through in focal points and implementing step by step, making all work matters such as legislation, law popularization, law enforcement, legal services, law enforcement supervision and examination, etc., support each other, spur each other, and jointly move forward.

3, Plan objectives. Through a period of great effort, clearly strengthening administrative radio, film and television entity work personnel and especially leading cadres’ administration according to the law consciousness and capacity, radio, film and television legal system frameworks to be basically shaped, radio, film and television system construction quality to be clearly raised, administrative policies to be made even more scientific and democratic according to the law, administrative law enforcement to be made even more just and civilized, management duties to be realistically carried out, government transparency to be completely moved forward, administrative supervision systems and duty inquiry systems to be even more perfected, corresponding social contradictions and disputes to be even more guarded against and dissolved, rule of law government, clean government and a service oriented government construction to be further strengthened.

II, Focal duties and steps

4, Raising an administration according to the law consciousness and capacity. All levels’ administrative radio, film and television work personnel and especially leading cadres must initiate studying the law, respecting the law, obeying the law and using the law, firmly establishing the socialist rule of law concept with basic content of ruling the country according to the law, law enforcement for the people, fairness and justice, serving the larger picture and Party leadership, realistically raising the capacity to use legal system thinking and legal methods to resolve prominent contradictions and problems in radio, film and television development and management. Establishing correct rights views, career achievement views and interest views, disciplining oneself according to the law, using administrative power according to the law, persisting in using power for the people and seeking benefit for the people. It is necessary to give regard to promoting excellent cadres a strong consciousness for using administration according to the law, good at utilizing legal methods to resolve problems and promoting development.

Strengthening legal system education for all levels’ leading cadres. Perfecting leading cadres’ study of the legal system, developing Party group centres to organize activities such as collectively studying law, thematic law lectures, etc., all levels’ administrative radio, film and television entity Party groups (Party Committee) centres organize at least one collective law study per year. Promoting administration according to the law situation observation and study, and law knowledge testing systems. Researching formulation of “Sixth Five-Year Plan” law popularization work plans. According to the principle of responsibility at different levels, guidance in different categories and paying attention to actual results, grasping focusing on law popularization targets, focusing on law popularization content, focusing on law popularization work. Adopting many kinds of forms, strengthening radio, film and television official team rule of law concept education and professional capacity training. Establishing long-term law knowledge study and training mechanisms, making legal system education into an important content to be brought into on-the-job training for officials. All levels’ administrative radio, film and television entities must regularly organize administrative law enforcement personnel to participate in common legal knowledge training, radio, film and television law knowledge rotational training, new law and regulation-theme training and law enforcement professional training. Doing well law popularization teaching material compiling and law popularization platform construction aimed at the real requirements of law popularization targets.

5, Realistically accelerating radio, film and television legislation work. In radio, film and television legislation work, it is necessary to fix the eyes upon resolving the multi-level problems in radio, film and television reform and development, promoting development method transformation, stimulating the great development and great flourishing of radio, film and television, concentrating forces to accelerate and move forward with radio, film and television focus legislation points. Drafting and formulating radio, film and television “Twelfth Five-Year Plan” legislation work plans. SARFT will vigorously coordinate with the NPC, the State Council Legal System Office to accelerate moving forward of the Film Industry Promotion Law and the Radio and Television Transmission Guarantee Law formulation work; at the right moment, starting radio, film and television legal system formulation work; coordinating with the State judiciary and relevant entities, strengthening relevant radio, film and television law article judicial interpretation formulation work. At the right time, starting revision work of administrative regulations such as the Radio and Television Management Regulations, the Film Management Regulations, the Satellite Television Broadcast Surface Reception Facility Management Regulations, Provisional Cable Television Management Rules, Imported Film Management Rules, etc. Centring on radio, film and television reform and development problems needing to be resolved most urgently, further doing well regulatory formulation and revision work. Supporting and encouraging localities with a good reform practice basis, and mature legislation conditions to roll out local radio, film and television regulations and governmental rules in advance, promoting administrative radio, film and television entities of localities with legislative powers to develop local radio, film and television legislation work. Drawing support from the legislation of other State levels, vigorously reflecting and embodying radio, film and television rule of law appeal. Strengthening administrative regulations and rules interpretation work.

6, Striving to raise system construction quality. In radio, film and television legislation, it is necessary to persist in scientific and democratic legislation according to the law, strictly respecting and obeying statutory powers and procedures, realistically raise legislation quality, strive to explore and grasp the rules of radio, film and television legislation work, strengthen the operability of systems and measures. Persisting in safeguarding the uniformity of the legal system, guaranteeing unimpeded government decrees. Implementing open legislation, broadly soliciting opinions, raising legislation transparency. Apart from where secrecy is needed according to the law, administrative regulation and rule drafts must openly solicit opinions, and in a suitable way accept feedback opinions and their reasons. Establishing and perfecting expert consultancy and expounding systems. Vigorously exploring development of legislation cost-benefit analysis, social risk evaluation and post-implementation evaluation work.

7, Tidying up rules and normative documents. administrative radio, film and television entities must strictly according to the requirements of the “Opinions” and corresponding State Council documents, perform radio, film and television rule and normative document tidying-up work. Persisting in laying equal stress in establishing “new law” and reforming “old law”. It is necessary to timely revise or abolish rules and normative documents that do not conform to the requirements of economic development, contradict or disagree with higher-level laws, or that are not coordinated mutually, and where dispatches are not standardized. It is necessary to timely announce the catalogue of abolished rules and normative documents to society as well as the continuous valid rules and normative documents. SARFT shall every five years, tidy up radio, film and television rules once, and every two years tidy up normative documents once, and announce the cleanup results to society.

8, Perfecting normative document formulation and filing procedures. All levels’ administrative radio, film and television entities must strictly according to the law formulate normative documents. All normative documents rolled out by SARFT, must be promulgated under the name of SARFT, and may not be promulgated under the name of bureaus or departments. All sorts of normative documents may not establish matters such as administrative permits, administrative punishments, administrative coercion, etc., may not unlawfully expand the duties of citizens, legal persons or other organizations. Formulation of normative documents creating direct influence on the rights and obligations of citizens, legal person or other groups, must openly solicit opinions, the legal system organ conducts examination of legality, and it must be decided through collective discussion by the entity’s leadership rank meeting; those not having solicited opinions, being examined for legality or being collectively discussed, may not be promulgated and implemented. Apart from where secrecy is required according to the law, normative documents must all be opened up to society. SARFT will research the promulgation of special regulations for normative document formulation and filing examination, and progressively realize uniform registration, uniform numbering and uniform promulgation. SARFT and provincial-level administrative radio, film and television entity websites shall establish filing columns, and regularly announce catalogues of normative documents that passed through filing and examination.

9, Completely persisting in scientific and democratic policy-making according to the law. All levels’ administrative radio, film and television entities must according to the requirements of the “Opinions”, perfect rules of procedure, standardize administrative policy-making procedures. It is necessary to make public participation, expert expounding, and risk appraisal, examination of lawfulness and collective discussion and decision-making major necessary procedure of policy-making. Before making major policies, it is necessary to broadly solicit and fully attract opinions from all angles, and in a suitable way accept feedback opinions and their reasons. Progressively moving major policy-making solicitation systems forward. Perfecting administrative policy-making risk appraisal systems, for all policy-making matters such as major policies and major programmes relating to radio, film and television development and the popular masses’ direct interests, risk appraisal must be conducted, and advance reconciliation and disposition plans must be formulated. Those not having undergone risk appraisal, may not be submitted for discussion at a meeting, or be made into policy.

10, Strictly implementing administrative radio, film and television management duties according to the law. All levels; administrative radio, film and television entities must accurately grasp radio, film and television ideology and the double nature of the industry, correctly deal with the relationship between social interest and economic interest, abide by radio, film and television development rules and the rules of the socialist market economy, implement economic adjustment, market supervision, social management and public service functions according to the law, complete the basic duties of grasping the correct orientation, guaranteeing safe broadcast and development of undertakings and industries, strengthening management according to the law. It is necessary to according to the Centre’s requirements concerning the uniform deployment of cultural structural reform and administration according to the law work, earnestly implement the Administrative Permit Law, deepen administrative radio, film and television examination and approval system reform, further standardize and reduce administrative examination and approval, move government function transformation and management method innovation forward.

11, Standardizing administrative radio, film and television law enforcement activities. All levels’ administrative radio, film and television entities and law enforcement organs must firmly establish law enforcement for the people, earnestly implement the “State Council Secretariat Some Opinions Concerning Practicing the Administrative Law Enforcement Responsibility System” (SCS No. (2005)37), strictly implement administrative law enforcement responsibility systems. Timely combing law enforcement basis, scientifically establishing law enforcement posts, reasonably resolving law enforcement powers. Progressively establishing administrative decision power criteria systems, scientifically and reasonably splitting up and quantifying administrative decision powers. Strengthening law enforcement procedure system construction, splitting up law enforcement workflows, clarifying law enforcement segments and measures, guaranteeing procedural fairness, safeguarding the lawful rights and interests of administrative opposites. Completing administrative law enforcement investigation rules, standardizing evidence collection activities. Strengthening administrative law enforcement normalization construction, progressively moving law enforcement workflow on-line management forward. Strengthening law enforcement appraisal and assessment. All levels’ administrative radio, film and television entities must according to the Centre’s requirements on cultural structural reform and relevant SARFT documents, coordinate to perform comprehensive law enforcement organ establishment work, clarify radio, film and television law enforcement powers brought into comprehensive law enforcement, according to the law standardize radio, film and television comprehensive law enforcement law enforcement subjects. SARFT will be responsible for organizing the compilation of administrative radio, film and television enforcement handbooks and administrative radio, film and television law enforcement case analysis, clarifying administrative punishment matters, unifying administrative law enforcement documents and books. Perfecting comprehensive law enforcement coordination, cooperation and information circulation systems, strengthening major case supervision and management, realistically implementing radio, film and television management duties.

12, Vigorously utilizing high and new technology means to improve and innovate management methods. All levels’ administrative radio, film and television entities must accelerate the establishment and perfection of advanced and effective monitoring and supervision technology systems with broad coverage, raise administrative radio, film and television management efficiency and standardization levels. Highly giving regards to technological supervision of Internet audiovisual programmes, IP television, mobile telephone television, etc., under the three integrated networks, accelerating establishment of a uniform radio, film and television technology and content supervision platform, realizing complete and effective monitoring and supervision of activities such as content dissemination, organ operation, transmission effectiveness of different forms of radio and television. Establishing and perfecting digital film technology service and supervision platforms.

13, Energetically moving government openness forward. All levels administrative radio, film and television entities must earnestly implement the Government Information Openness Regulations and relevant State Council regulations, complete active government information openness work mechanisms, government information openness application and acceptance mechanisms, perform well government information openness catalogue and guideline drafting, renewal and supplementing work. SARFT will research the formulation of special regulations for radio, film and television government openness. Completely moving forward work openness systems, according to the law opening work bases, conditions, requirements, processes and results, fully informing relevant work programme information. It is necessary to reply within the statutory time limit to applications for opening government information by the popular masses, and do well corresponding service work. Moving forward electronic government information system construction, constructing network information and for-the-people service platforms, progressively moving online electronic examination and approval forward, serving with “One Window to the Outside” and “One Stop” methods, raising service efficiency, reducing administrative costs. Strengthening government website construction, perfecting government announcement forms, broadening information openness channels. Perfecting news announcement systems, timely announcing policies concerning major radio, film and television matters to the outside. Further perfecting information reporting mechanisms, raising information reporting quality. according to the law appropriately dealing with the relationship between information openness and secret protection.

14, Establishing and perfecting administrative mediation systems. All levels’ administrative radio, film and television entities must research the establishment of administrative mediation work systems of which the administrative radio, film and television entities have general responsibility, with legal system organs taking the lead, and professional organs as the core, scientifically defining mediation scopes, standardizing mediation procedures. It is necessary to conduct mediation according to the law over disputes involving a relatively large number of people, has  a relatively large influence, perhaps influencing social stability. Matters that cannot be resolved by administrative mediation, shall be timely notified to the parties concerned and actively transferred to other procedures for handling.

15, Strengthening and improving the conduct of administrative redress and administrative litigation work. All levels’ administrative radio, film and television entities must unblock redress application channels, simplify application procedures. It is necessary to earnestly do well interpretation and announcement work of matters not falling in the scope of redress according to the law, persisting in the activity of not accepting redress application for disputes without proper reason. It is necessary to strictly abide by the provision of the Administrative Redress Law, according to the law fairly make redress decision. Completing administrative redress organs, guaranteeing that redress cases are handled by two or more redress officials according to the law. At the right time starting administrative radio, film and television redress rule revision work. Perfecting administrative litigation systems, researching the formulation of concrete rules for administrative radio, film and television litigation. Sued administrative radio, film and television entities shall appoint personnel from the legal system organ and personnel investigating the administrative action at issue to appear in court and respond to litigation for administrative cases accepted by the People’s Courts, vigorously coordinating with the People’s Courts’ administrative litigation activities. Respecting and taking the initiative to implement the effective decisions of the People’s Courts. Timely correcting problems of administrative unlawfulness discovered in administrative redress or administrative litigation. Establishing and completing administrative redress and administrative litigation statistics and reporting systems.

16, Strengthening administrative supervision and responsibility inquiry. All levels’ administrative radio, film and television entities must on their own initiative accept supervision from the People’s Congress and its Standing Committee, democratic supervision by the Political Consultative Committee and the supervision implemented by the People’s Courts according to the law. It is necessary to earnestly respond to all motions and inquiries from all levels’ People’s Congress Members and Political Consultative Committee Members, and improve radio, film and television work on the basis of their opinions and advices. Perfecting reporting and complaint systems for the masses, announcing reporting and complaint channels. Strengthening and improving public opinion supervision, persisting in correct supervision, scientific supervision, supervision according to the law, and constructive supervision, guaranteeing the popular masses’ right of information, right of expression, right of participation and right of supervision. Strengthening internal supervision between higher and lower administrative radio, film and television entity levels and specialized supervision over auditing, supervision, etc. Straiten administrative responsibility inquiry, earnestly implementing the Administrative Supervision Law, the Civil Servant Law, the Administrative Organ Personnel Punishment Regulations and the Provisional Regulations Concerning Implementing Party and Government Leading Cadre Responsibility Inquiry. Researching the formulation of concrete regulations for major radio, film and television policy-making follow-up, feedback and responsibility investigation, moving forward punishment and anti-corruption system construction.

17, Incessantly strengthen sector self-discipline. All levels’ administrative radio, film and television entities must fully give rein to the self-education and self-discipline functions of the sector organizations, clarify the function divisions of administrative radio, film and television entities and sector organizations, stimulate the integration of governmental macro-level control and sector self-discipline. Earnestly summarizing successful methods and beneficial experiences of sector self-discipline in aspects such as advertising broadcasting, network audiovisual programme services, broadcaster and presenter professional ethics construction, etc., incessantly perfecting, timely popularizing, making it become an important channel for innovating management methods. Moving forward all sorts of radio, film and television sector organizations’ constructive and standardizing functions, strengthening leadership and management over sector organizations and intermediary organs.

18, Expanding rule of law propaganda strength. Continuing to give rein to the superiority of radio and television media, expanding social law-popularization and propaganda strength. Vigorously developing many kinds of legal system propaganda methods, innovating legal system columns and programmes, organizing legal system channels and frequencies, grasping legal system-themed film and television programme creation and production. Doing well the “4 December” national legal system propaganda day organization activities. Developing law popularization propaganda in implementing rural film screening projects. Strengthening law and regulation propaganda closely related to the popular masses’ life and production, forcefully carrying forward the spirit of the socialist rule of law, creating a desirable atmosphere of doing things according to the law, safeguarding the authority of laws in society, striving to move rule of law social construction forward.

III, Implementation and guarantees

19, Strengthening guidance over administration work according to the law. All levels’ administrative radio, film and television entities must give an even more prominent position to completely moving forward administration according to the law, strengthen rule of law government construction. Strengthening main personnel in charge to make a responsibility system with administering according to the law first. Establishing administration according to the law guidance and coordination mechanisms in which main responsible persons take the lead, uniformly guiding that entity to conduct administration work according to the law. Strengthening administration according to the law work assessment, deepening the formulation of administration according to the law assessment indicators for those entities, simultaneously deploying, simultaneously implementing and simultaneously assessing administration according to the law and radio, film and television reform, development and stabilization duties.

20, Formulating implementation plans, strengthening supervision and examination. All levels’ administrative radio, film and television entities and SARFT must according tot the “Opinions” and the requirements of this work plan, grasp formulation of realistic and feasible concrete plans and steps with strong operative nature. All levels’ administrative radio, film and television entities must annually report the moving forward of administration according to the law situation of the People’s Government controlling authority of one level higher. Strengthening supervision and guidance, monitoring and inspection over moving forward administration according to the law work, granting awards and rewards to work units and individuals with outstanding achievements according to relevant State provisions, issuing reports of criticisms to those with weak work.

21, Strengthening radio, film and television legal system organ and team construction. All levels’ administrative radio, film and television entities must fully give rein to the organization and coordination, and supervision and guidance functions of legal system organs in aspects of moving forward administration according to the law and constructing a rule of law government, further strengthen legal system organ construction, making legal system organs’ specifications, personnel allotment correspond with the duties and obligations they must undertake. Provincial-level administrative radio, film and television entities shall have legal system organs, allocate special personnel, and appoint special funding. Exploring the construction of legal consultancy systems, provincial-level and higher administrative radio, film and television entities establish legal consultancy, progressively realizing legal consultancy systematization. It is necessary to expand training, utilization and exchange strength of legal system cadres, give high attention to promote legal system cadres with high political qualities, good legal accomplishments and strong work capacity; provincial-level or higher afters must annually organize special training classes for legal system backbones, moving forward legal system cadre exchange and rotation, exploring on-the job education and formal education of legal system cadres. Legal system organs must earnestly implement their duties, and make plans and schemes for concrete administration according to the law work such as establishing rules and systems, administrative policy-making, dealing with contradictions, resolving difficult problems, etc., and provide services. Legal system organ personnel must adapt to the requirements of new tendencies and new tasks, centre on raising policy-making and support strength, raising legal system guarantee levels, strive to foster capacities in strategic thinking, rule of law thinking, being good at utilizing legal methods to resolve problems in development, strive to raise the level of doing well government legal system work, earnestly implement duties, contributing strength for administration according to the law of their entity.

广电总局关于印发加强法治政府建设工作规划的通知

11月11日,广电总局向各省、自治区、直辖市广播影视局,新疆生产建设兵团广播电视局,总局机关各司局、直属各单位发出《广电总局关于印发加强法治政府建设工作规划的通知》,通知说,为贯彻十七届五中全会精神,加快建设社会主义法治国家,加快建设法治政府和服务型政府,依照《国务院关于加强法治政府建设的意见》(国发〔2010〕33号),结合广播影视实际,制定了《广电总局关于加强法治政府建设的工作规划》,已经总局局务会议审议通过,现印发给你们。请结合工作实际,认真贯彻落实。

广电总局关于加强法治政府建设的工作规划

贯彻依法治国基本方略,推进依法行政,建设法治政府,是我们党治国理政从理念到方式的革命性变化,具有划时代的重要意义。加强法治政府建设是发展社会主义市场经济的必然要求,是促进社会公平正义的基本保证,是深化政治体制改革的重要方面,是政府建设和反腐败的重要举措。面对新形势、新任务、新要求,必须将加强法治政府建设贯穿于广播影视改革发展全过程,使广播影视工作始终有法律的支撑,始终有法律的保障,始终置于法律的监督之下。为进一步贯彻十七届五中全会精神,加强广播影视法治政府建设,根据《国务院关于加强法治政府建设的意见》(国发〔2010〕33号)(以下简称《意见》),结合广播影视实际,制定本工作规划。

一、总体要求与基本原则

1、总体要求。当前和今后一个时期,认真落实依法治国基本方略,将贯彻落实《意见》的要求作为广播影视系统的重要工作,切实增强法治意识,坚持党的领导、人民当家作主和依法治国有机统一,树立正确的权力观和政绩观,全面推进依法行政,不断提高依法决策、依法管理、依法办事的能力,提高广播影视行政部门的公信力和执行力,建设法治政府、廉洁政府和服务型政府,为促进广播影视大发展大繁荣发挥更大的作用。

2、基本原则

–坚持党的领导,牢固树立法治意识、宗旨意识、大局意识、责任意识。通过法定程序把党和国家在广播影视领域行之有效的路线方针政策转化为法律制度,并在广播影视工作中全面贯彻实施。

–坚持把贯彻落实科学发展观贯穿于法治政府建设全过程。坚持以人为本,维护公平正义,依法决策、依法管理,切实保障和实现人民群众的基本文化权利,满足人民群众日益增长的精神文化需求。

–坚持改革创新、服务广播影视科学发展,以体制机制创新为突破口,积极稳妥地解决广播影视改革发展中出现的新情况、新问题,革除体制性、机制性障碍,为改革发展创造良好的法治环境。

–坚持从实际出发,在法治政府建设中把握广播影视发展的特点和规律,做到与广播影视实际需要相适应,规范管理与促进繁荣发展相统一。

–坚持积极推进与循序渐进的统一,既通盘考虑、统筹规划,又突出重点、分步实施,使立法、普法、执法、法律服务、执法监督检查等各项工作有机衔接,互为支撑,互相带动,共同推进。

3、规划目标。经过一段时间努力,使广播影视行政部门工作人员特别是领导干部依法行政的意识和能力明显增强,广播影视法律法规体系框架基本形成,广播影视制度建设质量显著提高,行政决策更加依法科学民主,行政执法更加公正文明,管理职责得以切实履行,政务公开得以全面推进,行政监督体系和问责制度更加完善,相关社会矛盾纠纷得到有效防范和化解,法治政府、廉洁政府、服务型政府建设进一步加强。

二、重点任务和措施

4、提高依法行政意识和能力。各级广播影视行政工作人员特别是领导干部要带头学法、尊法、守法、用法,牢固树立依法治国、执法为民、公平正义、服务大局、党的领导为基本内容的社会主义法治理念,切实提高运用法治思维和法律手段解决广播影视发展管理中的突出矛盾和问题的能力。树立正确的权力观、政绩观、利益观,依法律己、依法治权,坚持权为民所用,利为民所谋。要重视提拔使用依法行政意识强,善于运用法律手段解决问题、推动发展的优秀干部。

加强对各级领导干部的法制教育。完善领导干部学法制度,开展党组中心组集体学法、专题法律讲座等活动,各级广播影视行政部门党组(党委)中心组每年至少应安排一次集体学法。推行依法行政情况考察和法律知识测试制度。研究制定“六五”普法工作规划。按照分级负责、分类指导、讲究实效的原则,抓好重点普法对象、重点普法内容、重点普法工作。采取多种形式,加强广播影视公务员队伍的法治理念教育和业务能力培训。建立法律知识学习培训长效机制,将法制教育作为重要内容纳入公务员在职培训。各级广播影视行政部门要定期组织行政执法人员参加通用法律知识培训、广播影视法律知识轮训、新法律法规专题培训和执法业务培训。针对不同普法对象的实际需求,做好普法教材编写和普法平台建设。

5、切实加快广播影视立法工作。在广播影视立法工作中,要着眼于解决广播影视改革发展的深层次问题、推动发展方式转变、促进广播影视大发展大繁荣,集中力量加快推进广播影视重点立法项目。起草制定广播影视“十二五”立法工作规划。广电总局将积极配合全国人大、国务院法制办加快推进电影产业促进法、广播电视传输保障法制定工作;适时启动广播电视法制定工作;配合国家司法机关和有关部门,加强有关广播影视法律条款司法解释的制定工作。适时启动广播电视管理条例、电影管理条例、卫星电视广播地面接收设施管理规定、有线电视管理暂行办法、进口影片管理办法等行政法规的修订工作。围绕广播影视改革和发展中最急需解决的问题,进一步做好规章的制定和修改工作。支持鼓励改革实践基础好、立法条件成熟的地方先行出台广播影视地方性法规、政府规章,推动有立法权限地区的广播影视行政部门开展广播影视地方立法工作。借助其他国家层面的立法活动,积极反映并体现广播影视法治诉求。加强行政法规、规章解释工作。

6、努力提高制度建设质量。在广播影视立法工作中,要坚持依法科学民主立法,严格遵守法定权限和程序,切实提高立法质量,努力探索和把握广播影视立法工作的规律,增强制度、措施的可操作性。坚决维护法制统一,确保政令畅通。实行开门立法,广泛听取意见,提高立法透明度。除依法需要保密的外,行政法规和规章草案要公开征求意见,并以适当方式反馈意见采纳情况及其理由。建立健全专家咨询论证制度。积极探索开展立法成本效益分析、社会风险评估、实施后评估工作。

7、做好规章和规范性文件的清理。广播影视行政部门要严格按照《意见》及国务院有关文件的要求,做好广播影视规章、规范性文件的清理工作。坚持立“新法”和改“旧法”并重。对不符合经济社会发展要求,与上位法抵触、不一致或者相互之间不协调、发文不规范的规章、规范性文件,要及时修改或废止。要及时向社会公布废止的规章、规范性文件以及继续有效的规章、规范性文件目录。广电总局将每隔5年对广播影视规章清理一次,每隔2年对广播影视规范性文件清理一次,并向社会公布清理结果。

8、完善规范性文件制定、备案程序。各级广播影视行政部门要严格依法制定规范性文件。凡广电总局出台的规范性文件,需以广电总局名义发布,不得以司局名义发布。各类规范性文件不得设定行政许可、行政处罚、行政强制等事项,不得违法增加公民、法人和其他组织的义务。制定对公民、法人或者其他组织的权利义务产生直接影响的规范性文件,要公开征求意见,由法制机构进行合法性审查,并经部门领导班子会议集体讨论决定;未经公开征求意见、合法性审查、集体讨论的,不得发布施行。除依法需要保密外,规范性文件都要向社会公开。广电总局将研究制定规范性文件制定和备案审查专门规定,逐步实现统一登记、统一编号、统一发布。广电总局和省级广播影视行政部门的政府网站应设立备案专栏,定期公布通过备案审查的规范性文件目录。

9、始终坚持依法科学民主决策。各级广播影视行政部门要按照《意见》的要求,完善议事规则,规范行政决策程序。要把公众参与、专家论证、风险评估、合法性审查和集体讨论决定作为重大决策的必经程序。作出重大决策之前,要广泛听取、充分吸收各方面意见,并以适当形式反馈意见采纳情况及其理由。逐步推行重大决策听证制度。完善行政决策风险评估机制,凡是关系广播影视发展和人民群众切身利益的重大政策、重大项目等决策事项,都要进行风险评估,制定相应的化解处置预案。未经风险评估的,不得提交会议讨论、作出决策。

10、严格依法履行广播影视行政管理职责。各级广播影视行政部门要准确把握广播影视意识形态和产业双重属性,正确处理社会效益和经济效益的关系,遵循广播影视发展规律与社会主义市场经济规律,依法履行经济调节、市场监管、社会管理、公共服务职能,完成把握正确导向、确保安全播出、发展事业产业、依法加强管理的基本任务。要按照中央关于文化体制改革的统一部署和依法行政工作要求,认真执行行政许可法,深化广播影视行政审批制度改革,进一步规范和减少行政审批,推进政府职能转变和管理方式创新。

11、规范广播影视行政执法行为。各级广播影视行政部门和执法机构要牢固树立执法为民理念,认真贯彻《国务院办公厅关于推行行政执法责任制的若干意见》(国办发〔2005〕37号),严格落实行政执法责任制。及时梳理执法依据、科学设定执法岗位,合理分解执法职权。逐步建立行政裁量权基准制度,科学合理细化、量化行政裁量权。加强执法程序制度建设,细化执法流程,明确执法环节和步骤,保障程序公正,维护行政相对人的合法权益。健全行政执法调查规则,规范取证活动。加强行政执法信息化建设,逐步推行执法流程网上管理。加强执法评议考核。各级广播影视行政部门要按照中央文化体制改革和总局有关文件的要求,配合做好综合执法机构的组建工作,明确纳入综合执法的广播影视执法职责,依法规范广播影视综合执法的执法主体。广电总局将负责组织编写广播影视行政执法手册和广播影视行政执法案例分析,明确行政处罚事项、统一行政执法文书。完善综合执法协调配合和信息通报制度,加强重大案件的督察督办,切实履行广播影视管理职责。

12、积极运用高新技术手段改进和创新管理方式。各级广播影视行政部门要加快建立完善覆盖广泛、先进高效的监测监管技术系统,提高广播影视行政管理效率和规范化水平。高度重视三网融合下的互联网视听节目、IP电视、手机电视等新媒体的技术监管,加快建立统一的广播影视技术和内容监管平台,实现对不同形态广播电视的内容传播、机构运营、传输效果等活动的全面有效监测监管。建立和完善数字电影技术服务监管平台。

13、大力推进政务公开。各级广播影视行政部门要认真贯彻执行政府信息公开条例和国务院有关规定,健全政府信息主动公开工作机制、政府信息公开申请受理机制,做好政府信息公开目录和指南的编制、更新、补充工作。广电总局将研究制定广播影视政务公开专门规定。全面推进办事公开制度,依法公开办事依据、条件、要求、过程和结果,充分告知办事项目有关信息。对人民群众申请公开政府信息的,要依法在规定时限内予以答复,并做好相应服务工作。推进电子政务信息系统建设,建设好网络信息和便民服务平台,逐步推行网上电子审批、“一个窗口对外”和“一站式”服务,提高服务效率,降低行政成本。加强政府网站建设,完善政府公告形式,拓宽信息公开渠道。完善新闻发布制度,及时就广播影视重大事项对外发布政策。进一步完善信息报送机制,提高信息报送质量。依法妥善处理好信息公开与保守秘密关系。

14、建立健全行政调解机制。各级广播影视行政部门要研究建立广播影视行政部门负总责、法制机构牵头、业务机构为主体的行政调解工作机制,科学界定调解范围,规范调解程序。对于涉及人数较多、影响较大、可能影响社会稳定的纠纷,要依法进行调解。对于行政调解无法解决的事项,应及时告知当事人或者主动转入其他程序处理。

15、加强改进行政复议和行政应诉工作。各级广播影视行政部门要畅通复议申请渠道,简化申请手续。对依法不属于复议范围的事项,要认真做好解释、告知工作,坚决纠正无正当理由不受理复议申请的行为。要严格遵循行政复议法的规定,依法公正作出复议决定。健全行政复议机构,确保复议案件依法由2名以上复议人员办理。适时启动广播影视行政复议办法的修改工作。完善行政应诉制度,研究制定广播影视行政应诉具体规定。对人民法院受理的行政案件,被诉广播影视行政部门应指派法制机构工作人员和参与被诉行政行为调查的工作人员出庭应诉,积极配合人民法院的行政审判活动。尊重并自觉履行人民法院的生效判决。及时纠正行政复议和行政应诉中发现的行政违法问题,改进行政管理工作。建立健全行政复议、行政应诉案件统计上报制度。

16、强化行政监督和问责。各级广播影视行政部门要自觉接受人大及其常委会的监督、政协的民主监督和人民法院依法实施的监督。要认真回复各级人大代表、政协委员的提案和询问,并根据其意见和建议改进广播影视工作。完善群众举报投诉制度,公布举报投诉渠道。加强和改进舆论监督,坚持准确监督、科学监督、依法监督、建设性监督,保障人民群众的知情权、表达权、参与权和监督权。加强广播影视行政部门上下级之间的内部层级监督和审计、监察等部门的专门监督。严格行政问责,认真执行行政监察法、公务员法、行政机关公务员处分条例和关于实行党政领导干部问责的暂行规定。研究制定广播影视重大决策跟踪反馈和责任追究具体规定,推进惩治和预防腐败体系建设。

17、不断强化行业自律。各级广播影视行政部门要充分发挥行业组织的自教自律作用,明确广播影视行政部门和行业组织的职能分工,促进政府宏观调控与行业自律相结合。认真总结广告播放、网络视听节目服务、播音员主持人职业道德建设等方面行业自律的成功做法和有益经验,不断完善,及时推广,使之成为创新管理方式的重要途径。推进各类广播影视行业组织的筹建和规范工作,加强对行业组织和中介机构引导和管理。

18、加大法治宣传力度。继续发挥广电传媒优势,加大社会普法宣传力度。积极开展多种形式的法制宣传,创新法制栏目节目、办好法制频道频率、抓好法制类题材的影视节目创作生产。搞好“12·4”全国法制宣传日组织活动。在实施农村电影放映工程中开展普法宣传。加强与人民群众生活生产密切相关的法律法规宣传,大力弘扬社会主义法治精神,在全社会营造依法办事、维护法律权威的良好氛围,努力推进法治社会建设。

三、实施与保障

19、加强对依法行政工作的领导。各级广播影视行政部门要把全面推进依法行政、加强法治政府建设摆在更加突出的位置。强化主要负责人作为依法行政工作第一责任人制度。建立由主要负责人牵头的依法行政领导协调机制,统一领导本部门推进依法行政工作。加强依法行政工作考核,探索制定本部门依法行政考核指标,将依法行政任务与广播影视改革发展稳定任务同时部署、同时落实、同时考核。

20、制定贯彻落实方案,加强督促检查。各级广播影视行政部门和广电总局各司局要根据《意见》和本工作规划的要求,抓紧制定切实可行、操作性强的具体方案和措施,落实工作任务和责任分工。地方各级广播影视行政部门要将具体方案和措施上报上一级广播影视行政部门备案。各级广播影视行政部门每年要向本级人民政府和上一级主管部门报告推进依法行政情况。加强对推进依法行政工作的督促指导、监督检查,对成绩突出的单位和个人按照国家有关规定给予表彰奖励,对工作不力的予以通报批评。

21、加强广播影视法制机构和队伍建设。各级广播影视部门要充分发挥法制机构在推进依法行政、建设法治政府方面的组织协调和督促指导作用,进一步加强法制机构建设,使法制机构的规格、编制与其承担的职责和任务相适应。省级广播影视行政部门应有法制机构,配备专门人员,解决专门经费。探索建立法律顾问制度,省级以上广播影视行政部门应设立法律顾问,逐步实现法律顾问制度化。要加大对法制干部的培养、使用和交流力度,重视提拔政治素养高、法律素养好、工作能力强的法制干部;省级以上广播影视行政部门要每年举办法制骨干专题培训班,推进法制干部交流、轮岗,探索法制干部在职教育和学历教育。法制机构要认真履行职责,为建章立制、行政决策、处理矛盾、解决难题等依法行政具体工作出谋划策,提供服务。法制机构工作人员要适应新形势、新任务的要求,围绕提高决策支持水平,提高法制保障水平,着力培养战略思维、法治思维、善于运用法律手段解决发展中的问题的能力,努力提高做好政府法制工作的水平,认真履行职责,为推进本部门依法行政贡献力量。

One thought on “Strengthening a Rule of Law Government Construction Work Plan

    […] there is none. In any case, it seems to me that if the government explicitly states that it wants to construct a rule-by-law system in the cultural sphere, publicizing the full texts of new regulations is an elementary […]

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