Explaining the “Telephone User Real Identity Information Registration Regulations”

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On 16 July 2013, the Ministry of Industry and Information Technology promulgated the “Telephone User Real Identity Information Registration Regulations” (People’s Republic of China, Ministry of Industry and Information Technology Decree No. 25). A journalist interviewed Ministry of Industry and Information Technology Politico-Legal Department Inspector Li Guobin, asking him to explain the “Regulations”.

Q: The Ministry of Industry and Information Technology recently promulgated the “Telephone User Real Identity Information Registration Regulations”, could I ask what the significance of publishing the “Regulations” is?

Li Guobin: In recent years, our country’s telecommunications sector has developed rapidly, by the end of 2013, the number of telephone users reached 1.39 billion nationwide. At the same time, use of telephones for which real identity information has not been registered to disseminate obscene electronic information, send junk SMS messages, distribute harmful information, conduct fraud, and other problems has become prominent, which influences the lawful rights and interests of users, upsets social order, and even threatens national security. In December 2012, the NPC published the “Decision concerning Strengthening Network Information Protection” (hereafter simply named “Decision”), which clarified the structures for real identity information registration of telephone users from a legal angle. Through formulating the “Regulations”, the scope, procedure, requirements, information protection and other structures for real user identity information registration have been clarified, which benefits the protection of the broad users’ lawful rights and interests, raising telecommunications service levels and restraining unlawful network information acts.

Q: Can you tell all of us something concerning the formulation process of the “Regulations”?

Li Guobin: On the basis of the NPCS Standing Committee “Decision” and the need to standardize telephone users’ real identity information registration activities, the Ministry of Industry and Information Technology has organized the launch of legislation work for the “Regulations”

On the basis of organizing and launching legislative research, going to relevant provinces and cities for investigation and research, and hearing opinions from relevant telecommunications enterprises and departments related to ministerial organs, in late January of this year, we researched and formed a draft for the “Regulations”. In the beginning of February, we sought written opinions from all provincial (autonomous regions, municipal) telecommunications management bureaus and basic telecommunications business operators in relation to the “Regulations”. In late February, we organized that a number of telecommunications management bureaus conducted research of regulatory structures related to the “Regulations”. In April, we have openly sought opinions from through the State Council Legal Affairs Office “Chinese Government Legal System Information Web” and our Ministry’s website. Through soliciting opinions, the opinions of all areas of societies have mainly concentrated around the areas of expanding the protection strength for registered information and expanding the punitive strength against acts violating the “regulations”. Concerning the formulation of the “Regulations” and the main content of the “Regulations”, no disagreements on the basis of principle exist among all sides. Afterwards, we have combed through, researched and analysed the opinions from all sides, and further perfected the relevant structures in the “Regulations”. On the basis of the above-mentioned work, we have formed the “Regulations (Draft)”.

On 28 June 2013, Our Ministry’s 2nd ministerial meeting deliberated and passed the “Regulations”, which were promulgated on 16 July. The “Regulations” will take effect on 1 September.

Q: Can you tell us something about the main content of the “Regulations”?

Li Guobin: The “Regulations” contain 21 Articles, which mainly provide for the following content:

(1) The meaning of telephone user real identity information registration. The “Regulations” are based on the provisions of the NPC Standing Committee “Decision”, and defines telephone user identity information registration as: activities of truthfully registering real identity information provided by users, at the time where telecommunications business operators conduct connection formalities for fixed telephones, mobile telephones (including wireless network cards, similar hereafter), etc., conclude a contract or confirm provision of service with the user.

(2) Supervision and management responsibilities. The “Regulations” integrate the provisions of the “Telecommunications Regulations of the People’s Republic of China”, and clarifies that the Ministry of Industry and Information Technology and all provincial (regional, municipal) telecommunications management bureaus conduct supervision and management over telephone user real identity registration work. At the same time, the “Regulations” clearly require that telecommunications management organs implement supervision and inspection of the real user identity information registration and protection situation at telecommunications business operators.

(3) Structures for real user identity information registration. The “Regulations” provide for the following structures for real user identity information registration in the areas of registration subjects, registration duties, registration scope, document categories, document inspection, information storage, self-inspection and training, etc.: telecommunications business operators shall, when handling connection formalities for users, require users to produce valid credentials and provide real identity information, users shall cooperate; telecommunications business operators shall inspect the credentials produced by users, and truthfully register the document category as well as the name, number and residential address indicated on the certification; information and materials related to identity shall be preserved for two years after the termination of service provision to users; where users refuse to provide identity information, telecommunications business operators may not handle connection formalities for them; telecommunications business operators shall conduct self-inspection of the information registration and protection situation at least once every year, and conduct training for their work personnel. Furthermore, the “Regulations” learn from provisions on real-name systems for individual savings accounts, etc., and make corresponding provisions on differentiating valid document categories of individuals and work units.

(4) Real user identity information protection structures. The “Regulations” persist in equally stressing users’ real identity information registration and protection, they clearly require that telecommunications business operators shall protect the real identity information provided by users, and shall strictly keep real user identity information secret; when leaks, harm or loss of users’ real identity information occurs, supplementary measures shall be admitted immediately.

(5) Management structures for agents. On the basis of the principle of “who operates, is responsible, who entrusts, is responsible”, and on the basis of the rules on entrustment and agency in civil law, the “Regulations” clearly provide that telecommunications business operators are responsible for the management of personal data protection work by their agents. The “Regulations” provide that: telecommunications business operators shall conduct supervision and management over the agent’s user real identity information registration and protection work, and may not entrust agents who do not conform to the requirements of registration and protection of user real identity information to conduct relevant formalities.

(6) Reporting structures. In order to guarantee that telecommunications business operators timely discover and deal with acts gravely infringing users’ real identity information and protect the lawful rights and interests of users, the “Regulations” provide that: where leak, damage or loss of telephone users’ real identity information occurs or may occur, Telecommunications business operators shall immediately adopt remedial measures; where it creates or may create grave consequences, they shall immediately report it to telecommunications management organs;  before making a handling decision on the basis of these Regulations, require the telecommunications business operator to provisionally cease the relevant activity, telecommunications business operators shall implement this.

At the same time, on the basis of the “Administrative Punishment Law”, the “Telecommunications Regulations of the People’s Republic of China”, the “Regulations” respectively establish corresponding legal liability for unlawful acts by telecommunications business operators, users and telecommunications management organs’ work personnel.

Q: As for users, extreme attention is paid to the issue of security of identity information that they provide, could I ask which measures the “Regulations” adopt in the area of user identity information protection?

Li Guobin: Protecting the security of real identity information provided by users is the issue that we pay foremost attention to, we have always paid high regard to the issue of user identity information protection. To this end, the “Regulations” require telecommunications business operators to strengthen protection of real identity information provided by users, they require telecommunications business operators to keep real user identity information strictly secret”, they must immediately adopt remedial measures when real user identity information is leaked, harmed or lost, and corresponding legal liability is provided. In order to expand the protection strength for real user identity information, at the same time as establishing corresponding protection system through the “Regulations”, we have also specially drafted the “Telecommunications and Internet Personal User Data Protection Regulations” (People’s Republic of China, Ministry of Industry and Information Technology Decree No. 24), the above regulations contain special provisions for the issue of protection of the personal data of telecommunications and Internet users. Relevant provisions among those also apply to the protection of the real identity information of telephone users.

Q: When users conduct real identity information registration according to the “Regulations”, can this influence their regular use of telephone services?

L Guobin: According to the “Regulations”, users only need to produce valid credentials to telecommunications business operators, provide real identity information and cooperate with telecommunications business operators in doing information registration work well when handling telephone connection formalities. Telecommunications business operators shall notify users through telephone, text message or public announcements and adopt convenient measures to conduct supplementary registration formalities for telephone users who did not provide real identity information before the “Regulations” take effect or whose information is incomplete. At the same time, telecommunications business operators handling supplementary registration formalities for users may also not increase the responsibilities of users without authorization. Users’ real identity information registration also does not influence users’ regular use of telephone services, it is hoped that the broad users understand and cooperate with telecommunications business operators in doing this work well.

Q: How do you believe that all sides will implement all structures in the “Regulations”?

Li Guobin: The “Regulations” are rules formulated on the basis of the NPC Standing Committee “Decision” and the “Telecommunications Regulations of the People’s Republic of China”. ON the basis of the provisions of the “Legislation Law of the People’s Republic of China”, all structures in the “Regulations” have legal binding power, all relevant subjects shall strictly abide by all the structures in the “Regulations”. Telephone user real identity registration work involves basic telecommunications enterprises, telephone users and telecommunications management organs. Basic telecommunications enterprises shall implement the provisions of the NPC Standing Committee “Decision”, and launch telephone user real identity information registration work according to the registration processes and requirements provided in the “Regulations”. When launching registration work, basic telecommunications enterprises must both strictly abide by the provisions of laws and regulations, and must also vigorously adopt measures to make it convenient for users to conduct real identity information registration. Telephone users are telecommunications service users, and should fully understand and vigorously cooperate with this work. Telecommunications management organs are the management organs for the telecommunications sector, and shall carry out supervision responsibilities according to the law, strengthen guidance over real user identity information registration work and supervision and inspection over real user identity information protection, and promote the smooth conduct of real user identity information registration work.

《电话用户真实身份信息登记规定》解读

2013年7月16日,工业和信息化部公布了《电话用户真实身份信息登记规定》(中华人民共和国工业和信息化部令第25号)。记者就该《规定》采访了工业和信息化部政法司巡视员李国斌,请他对《规定》进行了解读。

记者:工业和信息化部日前公布了《电话用户真实身份信息登记规定》,您能否向大家介绍《规定》出台的背景和意义?

李国斌:近年来,我国电信业持续快速发展,截至2012年底,全国电话用户达到13.9亿户。与此同时,利用未登记真实身份信息的电话传播淫秽电子信息、发送垃圾短信息、散布有害信息、实施诈骗等问题突出,影响了用户的合法权益,扰乱了社会秩序,甚至威胁国家安全。2012年12月,全国人大常委会出台了《关于加强网络信息保护的决定》(以下简称《决定》),从法律上明确了电话用户真实身份信息登记制度。通过制定《规定》,明确用户真实身份信息登记的范围、程序、要求和信息保护等制度,有利于保护广大用户的合法权益,提升电信服务水平,遏制网络信息违法行为。

记者:您能否向大家介绍一下《规定》的制定过程?

李国斌:根据贯彻全国人大常委会《决定》、规范电话用户真实身份信息登记活动的需要,工业和信息化部组织开展了《规定》立法工作。

在组织开展立法研究、赴有关省市调研、听取有关电信企业和部机关相关司局等意见的基础上,今年1月下旬,我们研究形成了《规定》草稿。2月上旬,我们书面征求了各省(区、市)通信管理局、基础电信业务经营者对《规定》的意见。2月下旬,我们组织部分通信管理局对《规定》的有关制度进行了研究。4月,我们通过国务院法制办的“中国政府法制信息网”和我部门户网站向社会公开征求了对《规定》的意见。经征求意见,社会各方面的意见主要集中在加大登记信息的保护力度、加大对违反《规定》行为的处罚力度方面。对于制定《规定》和《规定》的主要内容,各方面没有原则性不同意见。此后,我们对各方面意见进行了梳理、研究和分析,并对《规定》有关制度进行了进一步完善。在上述工作的基础上,我们形成了《规定(草案)》。

6月28日,工业和信息化部第2次部务会议审议通过了《规定》,并于7月16日予以公布。《规定》将自9月1日起施行。

记者:您能否介绍一下《规定》的主要内容?

李国斌:《规定》共二十一条,主要规定了如下内容:

(一)电话用户真实身份信息登记的含义。《规定》依据全国人大常委会《决定》的规定,将电话用户真实身份信息登记界定为:电信业务经营者为用户办理固定电话、移动电话(含无线上网卡)等入网手续,在与用户签订协议或者确认提供服务时,如实登记用户提供的真实身份信息的活动。

(二)监督管理职责。《规定》结合《中华人民共和国电信条例》的规定,明确由工业和信息化部和各省(区、市)通信管理局对电话用户真实身份信息登记工作实施监督管理。同时,《规定》明确要求电信管理机构对电信业务经营者的用户真实身份信息登记和保护情况实施监督检查,电信业务经营者应当予以配合。

(三)用户真实身份信息登记制度。《规定》从登记主体、登记义务、登记范围、证件类别、证件查验、信息留存、自查和培训等方面,规定了下列真实身份信息登记制度:电信业务经营者为用户办理入网手续时,应当要求用户出示有效证件、提供真实身份信息,用户应当予以配合;电信业务经营者应当对用户出示的证件进行查验,并如实登记证件类别以及证件上所记载的姓名(名称)、号码、住址信息;有关身份信息和材料在向用户提供服务期间及终止提供服务后两年内应当留存;用户拒绝提供身份信息的,电信业务经营者不得为其办理入网手续;电信业务经营者应当对其信息登记和保护情况每年至少进行一次自查,对其工作人员进行培训。此外,《规定》借鉴个人存款账户实名制等规定,对个人和单位的有效证件类别分别作了相应规定。

(四)用户真实身份信息保护制度。《规定》坚持用户真实身份信息登记和保护并重,明确要求电信业务经营者应当保护用户提供的真实身份信息,对用户真实身份信息应当严格保密;用户真实身份信息发生泄露、毁损、丢失时,应当立即采取补救措施。

(五)代理商的管理制度。《规定》按照“谁经营、谁负责”、“谁委托、谁负责”的原则,根据民法上的委托代理制度,明确规定由电信业务经营者负责对其代理商的信息登记工作实施管理。《规定》中规定:电信业务经营者应当对代理人的用户真实身份信息登记和保护工作进行监督和管理,不得委托不符合本规定有关用户真实身份信息登记和保护要求的代理人代办相关手续。

(六)报告制度。为了保证电信管理机构及时发现和处理严重侵害用户真实身份信息的行为,保护用户的合法权益,《规定》中规定:电话用户真实身份信息发生泄露、毁损、丢失,可能造成严重后果的,电信业务经营者应当立即向相关电信管理机构报告;电信管理机构在作出处理决定前,可以要求电信业务经营者暂停有关行为,电信业务经营者应当执行。

同时,《规定》依据《行政处罚法》、《中华人民共和国电信条例》等规定,分别对电信业务经营者、用户和电信管理机构工作人员的违法行为设定了相应的法律责任。

记者:作为用户,非常重视其提供的身份信息的安全问题,请问《规定》在用户身份信息保护方面采取了哪些措施?

李国斌:保护用户提供的真实身份信息的安全性是我们首先关注的问题,我们一直非常重视用户身份信息的保护问题。为此,《规定》要求电信业务经营者加强对用户提供的真实身份信息的保护,要求电信业务经营者对用户真实身份信息应当严格保密,在用户真实身份信息发生泄露、毁损、丢失时要立即采取补救措施等,并规定了相应的法律责任。为加大对用户真实身份信息的保护力度,我们在通过《规定》建立相关保护制度的同时,还专门制定了《电信和互联网用户个人信息保护规定》(中华人民共和国工业和信息化部令第24号),上述规定就电信和互联网用户个人信息的保护问题做了专门规定。其中的有关规定也适用于电话用户真实身份信息的保护。

记者:用户按照《规定》办理真实身份信息登记,会不会影响到正常使用电话服务?

李国斌:根据《规定》,用户在办理电话入网手续时,只需要向电信业务经营者出示有效证件、提供真实身份信息,配合电信业务经营者做好信息登记工作。电信业务经营者应当通过电话、短信息或者公告等形式告知用户并采取便利措施,为《规定》施行前尚未提供真实身份信息或者信息不全的电话用户补办登记手续。同时,电信业务经营者为用户补办登记手续,也不得擅自加重用户的责任。用户真实身份信息登记并不影响用户正常使用电话服务,希望广大用户理解并配合电信业务经营者做好这项工作。

记者:您认为各方面应当如何贯彻落实《规定》的各项制度?

李国斌:《规定》是根据全国人大常委会《决定》和《中华人民共和国电信条例》制定的一部规章。根据《中华人民共和国立法法》的规定,《规定》的各项制度具有法律的强制力,各有关主体应当严格遵守《规定》的各项制度。电话用户真实身份信息登记工作涉及基础电信企业、电话用户和电信管理机构。基础电信企业应当落实全国人大常委会《决定》的规定,按照《规定》确定的登记程序和要求开展电话用户真实身份信息登记工作。在开展登记工作中,基础电信企业既要严格遵守法律规定,又要积极采取措施,方便用户进行真实身份信息登记。电话用户作为电信服务的使用者,应当充分理解和积极配合这项工作。电信管理机构作为电信行业管理部门,应当依法履行监管职责,加强对用户真实身份信息登记工作的指导和对用户真实身份信息保护的监督检查,推动用户真实身份信息登记工作的顺利进行。
 

One thought on “Explaining the “Telephone User Real Identity Information Registration Regulations”

    […] through two interviews with spokesperson Li Guobin: one each for the telecommunications and telephone […]

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