关于开展国有农场办社会职能改革试点工作的意见
国务院农村综合改革工作小组
关于开展国有农场办社会职能改革试点工作的意见
国农改〔2012〕4号
各省、自治区、直辖市、计划单列市农村综合改革领导小组，新疆生产建设兵团农村综合改革领导小组：
国有农场是我国农村经济社会发展的重要组成部分，在确保国家粮食和国土生态安全，推动农业现代化建设，促进农村经济发展，维护社会稳定等方面发挥了重要作用。2006年深化国有农场税费改革，取消了国有农场的农业税和农场职工（以下简称农工）承担的类似农村“乡镇五项统筹”收费，减轻了农场和农工的负担，促进了农场发展和农工增收。但是，国有农场承担大量办社会职能，国有农场和农工的负担仍然较重，由此引发了不少矛盾。一些地方自主进行的国有农场办社会职能改革，也因缺乏统一政策指导、地方财力不足等原因，改革工作不够彻底。因此，为了切实减轻国有农场办社会负担，巩固国有农场税费改革成果，进一步理顺政企、事企、社企关系，促进国有农场经济发展和社会稳定，根据《中共中央国务院关于加大统筹城乡发展力度 进一步夯实农业农村发展基础的若干意见》（中发〔2010〕1号）有关精神，经国务院领导同意，现就开展国有农场办社会职能改革试点工作，提出如下意见。
一、指导思想
以邓小平理论和“三个代表”重要思想为指导，深入贯彻落实科学发展观，积极开展国有农场办社会职能改革试点，加大公共财政支持力度，切实减轻国有农场和农工负担，逐步实现国有农场政企、事企、社企分开，消除束缚国有农场发展的体制机制性障碍，促进国有农场经济和社会发展，推进全面建设小康社会和社会主义新农村建设。
二、目标任务
总的要求是，通过改革努力实现四个目标：一是将应由政府承担的国有农场办社会职能纳入公共财政保障范围，促进国有农场社会事业健康发展，改善农工生产生活条件；二是减轻农场和农工负担，增加农工收入，保障农工权益，促进农场经济发展；三是统筹规划，提高社会公共资源利用效率，促进国有农场与周边地区平衡协调发展，维护农村社会和谐稳定；四是与管理体制改革和经营机制创新相结合，建立健全与社会主义市场经济相适应的国有农场管理体制和经营机制。2012年选择内蒙古、辽宁、河南、湖北、海南、贵州、宁夏和新疆8个省份以省（自治区）为单位开展国有农场办社会职能改革试点，以后年度逐步扩大试点范围，用3年左右时间基本完成国有农场办社会职能改革试点工作。
三、基本原则
（一）区别情况，分类指导。根据不同地区、不同国有农场的具体情况，在改革范围、改革进度、改革方式上区别对待，因地制宜、分类指导。
（二）统一政策，分散决策。改革的政策和要求由中央统一制定，改革的具体实施步骤由各省级人民政府和中央有关部门根据国有农场实际情况，充分考虑财力状况和各方面承受能力自主决定。国有农场办社会职能改革试点的政策要与国有企业分离办社会职能改革、国有农场税费改革、国有农场体制改革等有关政策相衔接。
（三）积极稳妥，逐步分离。在改革步骤上采取先地方后中央、分步实施的办法，有条件的地区可以将国有农场办社会职能一步改革到位，暂不具备全面推进办社会职能改革条件的，可以分步、分项推进，逐步到位。
（四）各负其责，适当补助。按照隶属关系，中央直属垦区国有农场办社会职能改革由中央主管部门与地方政府共同组织实施，改革成本由中央财政予以适当补助。地方国有农场办社会职能改革由地方各级人民政府及相关部门负责组织实施，改革成本原则上由地方财政承担，中央财政参照国有农场税费改革的补助原则，考虑国有农场的特殊性，通过转移支付予以适当补助，重点支持中西部地区，兼顾东部地区。对先行改革地区本着“不让先改革者吃亏”的原则，按照统一政策给予补助。具体补助办法由财政部另行制定。
四、主要内容
（一）改革范围。国有农场办社会职能改革的范围，主要包括国有农垦企业、监狱农场、劳教（戒毒）农场、国有农牧渔良种场（小三场）等，不包括新疆生产建设兵团、华侨农场和国有林场。
（二）主要政策。将国有农场承担的属于政府职能范围的事务，包括义务教育、公共卫生和基本医疗服务、社区管理等职能，移交给当地政府承担和管理。对个别具有战略地位或远离城镇等客观条件不具备将办社会职能交由当地政府管理的国有农场，以及分离后管理成本更高的，可以不进行分离，所需经费由各级财政适当补助，建立稳定的经费保障机制。各地和有关部门应在规定的范围内，根据具体情况，因地制宜，确定国有农场办社会职能改革的具体内容。
（三）做好资产移交工作。对国有农场移交给地方政府管理的办社会职能机构，其资产原则上以移交前一年国有农场财务决算数为依据，整体移交，无偿划转，并妥善处理好债权债务关系。鼓励竞争性办社会职能机构通过市场化改革进行分离。
（四）妥善安置有关人员。各地要按照以人为本的原则，认真研究制定国有农场办社会职能改革人员安置政策，妥善做好相关人员安置工作，确保社会稳定。
（五）统筹社会事业发展。地方各级政府要充分考虑群众生产生活的需要，将国有农场纳入当地经济社会发展统一规划，加强社会事业经费保障，合理调整当地经济社会发展布局，提高社会事业整体效益，推进各项社会事业全面协调健康发展。
五、配套措施
（一）推进国有农场政企、事企、社企分开。对与地方政府实行“一套班子，两块牌子”管理体制的国有农场，实行政企、事企、社企分开，将应由各级财政开支的党政机构、人员与国有农场分离；暂不具备政企、事企、社企分开条件的国有农场，要实行内部分开。
（二）深化国有农场管理体制改革。逐步理顺国有农场管理体制，精简国有农场管理机构，减少管理层次和人员，降低管理成本，防止管理费用膨胀侵蚀办社会职能改革带给国有农场和农工的好处。促进国有农场产业化、股份化、市场化和企业化发展，建立现代企业制度，提高国有农场市场竞争力。对于不具备条件建立现代企业制度的农场，可根据当地实际情况，并入周边乡镇或单独设乡镇和管理区。
（三）进一步减轻农工负担。国有农场办社会职能改革后，要相应免除由农工承担的办社会职能费用，确保改革的好处落实到广大农工头上。涉及农工负担的项目和标准应由职工代表大会讨论通过，并按隶属关系报国有农场主管部门和财政部门备案。国有农场要严格执行涉及农工负担公示制度，接受农工和社会监督，防止加重农工负担，侵害农工利益。
（四）加强试点工作监督检查。在国有农场办社会职能改革试点中，要严格遵守相关的法律、法规和政策，建立健全监督机制，确保改革试点工作顺利进行。各级农村综合改革、财政、农业（垦）、监察、人社、机构编制等部门要对国有农场办社会职能改革试点工作中的资产划转、人员移交工作进行监督，防止国有资产流失。要建立起事前、事中、事后相结合，监督检查和重点抽查相配套的监管体系，确保财政补助资金使用规范、安全和有效。对弄虚作假、虚报冒领、截留挪用、套取补助资金、造成资金损失等行为，要追回补助资金。对改革试点中的违法违纪行为，要依法依纪追究有关人员的责任，涉嫌犯罪的，移交司法机关处理。
（五）制定改革试点实施方案。试点地区和有关部门要结合实际，深入调查研究，抓紧制定国有农场办社会职能改革试点的实施方案。地方国有农场办社会职能改革试点实施方案由各省、自治区、直辖市和计划单列市人民政府制定，中央直属垦区国有农场办社会职能改革试点方案由中央主管部门与地方政府共同研究确定，分别报国务院农村综合改革工作小组批复后组织实施。
六、组织领导
国有农场办社会职能改革是国家、国有农场和农工利益关系的一次重大调整，事关国有农场的发展和稳定，政策性强、涉及面广、工作量大、情况复杂。地方各级人民政府和有关部门要高度重视，站在全面贯彻落实科学发展观的高度，立足农村发展和社会稳定大局，切实加强对试点工作的领导。主要领导要亲自抓、负总责，建立健全相关部门分工负责的工作制度，协调好各方利益关系，明确目标任务，精心组织实施，及时化解各种矛盾和问题。各级农村综合改革、财政、农业（垦）、监察、人社、机构编制等相关部门要各司其职、各负其责，密切配合，加强指导，确保改革政策全面贯彻落实。要与接收地政府加强协调配合，确保移交工作顺利进行。要做好宣传工作，加大改革工作的透明度，研究新情况，解决新问题，确保改革工作顺利推进和社会和谐稳定。试点工作中出现的重大问题要及时向上级报告。
国务院农村综合改革工作小组
二〇一二年三月十五日
LAW OF THE PEOPLE'S REPUBLIC OF CHINA ON CONTROL OF THE ENTRY AND EXIT OF ALIENS ——附加英文版
The Standing Committee of the National People's Congress
LAW OF THE PEOPLE'S REPUBLIC OF CHINA ON CONTROL OF THE ENTRY AND EXIT OF ALIENS
(Adopted at the 13th Meeting of the Standing Committee of the
Sixth National People's Congress, promulgated by Order No. 31 of the
President of the People's Republic of China on November 22, 1985, and
effective as of February 1, 1986)
Contents
Chapter I General Provisions
Chapter II Entry into the Country
Chapter III Residence
Chapter IV Travel
Chapter V Exit from the Country
Chapter VI Administrative Organs
Chapter VII Penalties
Chapter VIII Supplementary Provisions
Chapter I General Provisions
Article 1
This Law is formulated with a view to safeguarding the sovereignty of the
People's Republic of China, maintaining its security and public order and
facilitating international exchange.
This Law is applicable to aliens entering, leaving and transiting the
territory of the People's Republic of China and to those residing and
travelling in China.
Article 2
Aliens must obtain the permission of the competent authorities of the
Chinese Government in order to enter, transit or reside in China.
Article 3
For entry, exit and transit, aliens must pass through ports open to aliens
or other designated ports and must be subject to inspection by the
frontier inspection offices. For entry, exit and transit, foreign-owned
means of transport must pass through ports open to aliens or other
designated ports and must be subject to inspection and supervision by the
frontier inspection offices.
Article 4
The Chinese Government shall protect the lawful rights and interests of
aliens on Chinese territory.
Freedom of the person of aliens is inviolable. No alien may be arrested
except with the approval or by decision of a people's procuratorate or by
decision of a people's court, and arrest must be made by a public security
organ or state security organ.
Article 5
Aliens in China must abide by Chinese laws and may not endanger the state
security of China, harm public interests or disrupt public order.
Chapter II Entry into the Country
Article 6
For entry into China, aliens shall apply for visas from Chinese diplomatic
missions, consular offices or other resident agencies abroad authorized by
the Ministry of Foreign Affairs. In specific situations aliens may, in
compliance with the provisions of the State Council, apply for visas to
visa-granting offices at ports designated by the competent authorities of
the Chinese Government.
The entry of nationals from countries having visa agreements with the
Chinese Government shall be handled in accordance with those agreements.
In cases where another country has special provisions for Chinese citizens
entering and transiting that country, the competent authorities of the
Chinese Government may adopt reciprocal measures contingent on the
circumstances.
Visas are not required for aliens in immediate transit on connected
international flights who hold passenger tickets and stay for no more than
24 hours in China entirely within airport boundaries. Anyone desiring to
leave the airport temporarily must obtain permission from the frontier
inspection office.
Article 7
When applying for various kinds of visas, aliens shall present valid
passports and, if necessary, provide pertinent evidence.
Article 8
Aliens who have been invited or hired to work in China shall, when
applying for visas, produce evidence of the invitation or employment.
Article 9
Aliens desiring to reside permanently in China shall, when applying for
visas, present status-of-residence identification forms. Applicants may
obtain such forms from public security organs at the place where they
intend to reside.
Article 10
The competent authorities of the Chinese Government shall issue
appropriate visas to aliens according to the purposes stated in their
entry applications.
Article 11
When an aircraft or a vessel navigating international routes arrives at a
Chinese port, the captain or his agent must submit a passenger name list
to the frontier inspection office; a foreign aircraft or vessel must also
provide a name list of its crew members.
Article 12
Aliens who are considered a possible threat to China's state security and
public order shall not be permitted to enter China.
Chapter III Residence
Article 13
For residence in China, aliens must possess identification papers or
residence certificates issued by the competent authorizes of the Chinese
Government. The term of validity of identification papers or residence
certificates shall be determined according to the purposes of entry.
Aliens residing in China shall submit their certificates to the local
public security organs for examination within the prescribed period of
time.
Article 14
Aliens who, in compliance with Chinese laws, find it necessary to
establish prolonged residence in China for the purpose of investing in
China or engaging in cooperative projects with Chinese enterprises or
institutions in the economic, scientific, technological and cultural
fields, or for other purposes, are eligible for prolonged or permanent
residence in China upon approval by the competent authorities of the
Chinese Government.
Article 15
Aliens who seek asylum for political reasons shall be permitted to reside
in China upon approval by the competent authorities of the Chinese
Government.
Article 16
Aliens who fail to abide by Chinese laws may have their period of stay in
China curtailed or their status of residence in China annulled by the
competent authorities of the Chinese Government.
Article 17
For a temporary overnight stay in China, aliens shall complete
registration procedures pursuant to the relevant provisions.
Article 18
Aliens holding residence certificates who wish to change their place of
residence in China must complete removal formalities pursuant to the
relevant provisions.
Article 19
Aliens who have not acquired residence certificates or who are on a study
programme in China may not seek employment in China without permission of
the competent authorities of the Chinese Government.
Chapter IV Travel
Article 20
Aliens who hold valid visas or residence certificates may travel to places
open to aliens as designated by the Chinese Government.
Article 21
Aliens desiring to travel to places closed to aliens must apply to local
public security organs for travel permits.
Chapter V Exit from the Country
Article 22
For exit from China, aliens shall present their valid passports or other
valid certificates.
Article 23
Aliens belonging to any of the following categories shall not be allowed
to leave China:
(1) defendants in criminal cases or criminal suspects confirmed by a
public security organ, a people's procuratorate or a people's court;
(2) persons who, as notified by a people's court, shall be denied exit
owing to involvement in unresolved civil cases; and
(3) persons who have committed other acts in violation of Chinese law who
have not been dealt with and against whom the competent authorities
consider it necessary to institute prosecution.
Article 24
Frontier inspection offices shall have the power to stop aliens belonging
to any of the following categories from leaving the country and to deal
with them according to law:
(1) holders of invalid exit certificates;
(2) holders of exit certificates other than their own; and
(3) holders of forged or altered exit certificates.
Chapter VI Administrative Organs
Article 25
China's diplomatic missions, consular offices and other resident agencies
abroad authorized by the Ministry of Foreign Affairs shall be the Chinese
Government's agencies abroad to handle aliens' applications for entry and
transit.
The Ministry of Public Security, its authorized local public security
organs, the Ministry of Foreign Affairs and its authorized local foreign
affairs departments shall be the Chinese Government's agencies in China to
handle aliens' applications for entry, transit, residence and travel.
Article 26
The authorities handling aliens' applications for entry, transit,
residence and travel shall have the power to refuse to issue visas and
certificates or to cancel visas and certificates already issued or declare
them invalid.
The Ministry of Public Security and the Ministry of Foreign Affairs may,
when necessary, alter decisions made by their respectively authorized
agencies.
Article 27
An alien who enters or resides in China illegally may be detained for
examination or be subjected to residential surveillance or deportation by
a public security organ at or above the county level.
Article 28
While performing their duties, foreign affairs police of the public
security organs at or above the county level shall have the power to
examine the passports and other certificates of aliens. When conducting
such examinations, the foreign affairs police shall produce their own
service certificates, and relevant organizations or individuals shall have
the duty to offer them assistance.
Chapter VII Penalties
Article 29
If a person, in violation of the provisions of this Law, enters or leaves
China illegally, establishes illegal residence or makes an illegal
stopover in China, travels to places closed to aliens without a valid
travel document, forges or alters an entry or exit certificate, uses
another person's certificate as his own or transfers his certificate, he
may be penalized by a public security organ at or above the county level
with a warning, a fine or detention for not more than ten days. If the
circumstances of the case are serious enough to constitute a crime,
criminal responsibility shall be investigated in accordance with the law.
If an alien subject to a fine or detention by a public security organ
refuses to accept the penalty, he may, within 15 days of receiving
notification, appeal to the public security organ at the next higher
level, which shall make the final decision; he may also directly file suit
in the local people's court.
Article 30
In cases where a person commits any of the acts stated in Article 29 of
this Law, if the circumstances are serious, the Ministry of Public
Security may impose a penalty by ordering him to leave the country within
a certain time or may expel him from the country.
Chapter VIII Supplementary Provisions
Article 31
For the purposes of this Law the term "alien" means any person not holding
Chinese nationality according to the Nationality Law of the People's
Republic of China.
Article 32
Transistory entry into and exit from China by aliens who are nationals of
a country adjacent to China and who reside in areas bordering on China
shall be handled according to any relevant agreements between the two
countries or, in the absence of such agreements, according to the relevant
provisions of the Chinese Government.
Article 33
The Ministry of Public Security and the Ministry of Foreign Affairs shall,
pursuant to this Law, formulate rules for its implementation, which shall
go into effect after being submitted to and approved by the State Council.
Article 34
Affairs concerning members of foreign diplomatic missions and consular
offices in the People's Republic of China and other aliens who enjoy
diplomatic privileges and immunities, after their entry into China, shall
be administered in accordance with the relevant provisions of the State
Council and its competent departments.
Article 35
This Law shall go into effect on February 1, 1986.
Important Notice:
This English document is coming from "LAWS AND REGULATIONS OF THE
PEOPLE'S REPUBLIC OF CHINA GOVERNING FOREIGN-RELATED MATTERS" (1991.7)
which is compiled by the Brueau of Legislative Affairs of the State
Council of the People's Republic of China, and is published by the China
Legal System Publishing House.
In case of discrepancy, the original version in Chinese shall prevail.
