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| Opinions of the State Council on Several Policies and Measures for Supporting the Development and Opening-up of Major Border Areas | | 国务院关于支持沿边重点地区开发开放若干政策措施的意见 |
| (No. 72 [2015] of the State Council) | | （国发〔2015〕72号） |
| The people's governments of all provinces, autonomous regions, and municipalities directly under the Central Government; all ministries and commissions of the State Council; and all institutions directly under the State Council: | | 各省、自治区、直辖市人民政府，国务院各部委、各直属机构： |
| Major pilot development and opening-up zones, state-level border ports, border cities, border economic cooperation zones, cross-border economic cooperation zones, and other major border areas are important platforms for China to deepen its cooperation with neighboring countries and regions, important support for the economic and social development of border areas, and important barrier for safeguarding the border and homeland security. They are becoming offensive move and vanguard for implementing the strategy of “One Belt and One Road” and are playing an important role in the overall objectives of the national reform and development. In order to implement the policies and deployments of the CPC Central Committee and the State Council, firmly establish and effectively implement the development concepts of innovation, coordination, environment-friendliness, opening-up, and sharing, give support to the development and opening-up of major border areas, and build the motherland's frontiers with economic prosperity and social stability, the following opinions are hereby raised: | | 重点开发开放试验区、沿边国家级口岸、边境城市、边境经济合作区和跨境经济合作区等沿边重点地区是我国深化与周边国家和地区合作的重要平台，是沿边地区经济社会发展的重要支撑，是确保边境和国土安全的重要屏障，正在成为实施“一带一路”战略的先手棋和排头兵，在全国改革发展大局中具有十分重要的地位。为落实党中央、国务院决策部署，牢固树立并切实贯彻创新、协调、绿色、开放、共享的发展理念，支持沿边重点地区开发开放，构筑经济繁荣、社会稳定的祖国边疆，现提出以下意见。 |
| I. Thoroughly promoting the program of prospering border areas and enriching the inhabitants therein and realizing the stability and prosperity of border areas | | 一、深入推进兴边富民行动，实现稳边安边兴边 |
| 1. Support shall be given to inhabitants of border areas in stabilizing and prospering border areas. More support shall be given to border areas in the improvement of people's livelihood and border areas shall be stabilized and prospered by means of enlarging employment, developing industries, innovating in technologies, and giving partner assistance. Business startups and innovations from all walks of life shall be positively promoted, the threshold for business startups and innovations shall be lowered, “zero-cost” registration of the self-business startups by inhabitants of border areas shall be implemented, and qualified inhabitants of border areas may apply for business start-up guarantee loans of not more than 100,000 yuan. Inhabitants of border areas shall be encouraged to be relocated and settled in areas of 0 to 3 km to the borders, the people's governments at the provincial level may, according to the actual situations, establish a dynamic mechanism of subsidies to inhabitants of border areas, and the Central Treasury shall give support by general transfer payment. More support shall be given to border resettlement villages, the subsidy standard shall be raised, and inhabitants of border areas shall be encouraged to develop production by means of self-dependence. With the platform of promotion on the basis of whole villages, the improvement of production and living conditions of poverty villages in border areas shall be accelerated, policies shall be implemented according to specific people and local conditions, precise poverty alleviation shall be implemented for population in poverty on file, poverty alleviation and relocation through change or residence in border areas where “the inhabitants cannot be supported there” shall be implemented, ecological protection for poverty alleviation shall be conducted in border areas with especially important and fragile ecology so that the people of all nationalities in border areas will build an overall well-off society together with people across the country. The local people's governments at the provincial level may make explorations to reward personnel who have worked in government departments and state-owned enterprises and public institutions in major border areas for more than 20 years and have no bad records according to the relevant regulations of the state when they are retired. Great efforts shall be made to introduce high-level talents and floating population shall be provided with short-term housing, education and training, policy consultation, technical services, legal assistance, and other work and living guarantee. The building of basic-level organizations in major border areas shall be strengthened, great efforts shall be made to the village-level Party organization development with the core of village-level Party organizations, such fighting bastion roles of basic-level Party organizations as promoting development, serving the people, increasing cohesion, and promoting harmony shall be brought into full play, people of all nationalities in border areas shall be united closely around the Party. (The Ministry of Human Resources and Social Security, the Ministry of Finance, the Ministry of Education, the State Ethnic Affairs Commission, the Organization Department of the CPC Central Committee, the Ministry of Civil Affairs, and the Leading Group Office of Poverty Alleviation of the State Council shall take charge of the aforesaid work.) | | （一）支持边民稳边安边兴边。加大对边境地区民生改善的支持力度，通过扩大就业、发展产业、创新科技、对口支援稳边安边兴边。积极推进大众创业、万众创新，降低创业创新门槛，对于边民自主创业实行“零成本”注册，符合条件的边民可按规定申请10万元以下的创业担保贷款。鼓励边境地区群众搬迁安置到距边境0-3公里范围，省级人民政府可根据实际情况建立动态的边民补助机制，中央财政通过一般性转移支付给予支持。加大对边境回迁村（屯）的扶持力度，提高补助标准，鼓励边民自力更生发展生产。以整村推进为平台，加快改善边境地区贫困村生产生活条件，因人因地施策，对建档立卡贫困人口实施精准扶贫、精准脱贫，对“一方水土养不起一方人”的实施易地扶贫搬迁，对生态特别重要和脆弱的实行生态保护扶贫，使边境地区各族群众与全国人民一道同步进入全面小康社会。对于在沿边重点地区政府部门、国有企事业单位工作满20年以上且无不良记录的工作人员，所在地省级人民政府可探索在其退休时按照国家规定给予表彰。大力引进高层次人才，为流动人才提供短期住房、教育培训、政策咨询、技术服务和法律援助等工作生活保障。加强沿边重点地区基层组织建设，抓好以村级党组织为核心的村级组织建设，充分发挥基层党组织推动发展、服务群众、凝聚人心、促进和谐的战斗堡垒作用，带领沿边各族人民群众紧密团结在党的周围。（人力资源社会保障部、财政部、教育部、国家民委、中央组织部、民政部、扶贫办负责） |
| 2. The level of basic public services shall be raised. More support shall be given to the basic social security system for inhabitants of border areas. Where qualified inhabitants of border areas participate in the new rural cooperative medical system, the governments shall pay the insurance premiums on their behalf. The reimbursement ratio of the new rural cooperative medical care shall be raised and the urban population in poverty in border areas shall be incorporated into the urban basic medical insurance system as required. By focusing on central border cities, border ports, and towns along traffic lines, more partner assistance services shall be given to basic-level medical and health service institutions in border areas. The policy of 12-year free education shall be implemented in areas where conditions permit. The free-tuition system for secondary vocational education shall be implemented. Teachers shall be selected and assigned to support education in border areas and building of the local teaching staff. More efforts shall be made to the opening-up of education and support shall be given to border cities in carrying out cooperation in running schools with internally-known schools. The improvement of universal telecommunications services shall be accelerated, the construction of communication infrastructure shall be strengthened, the level of information network coverage shall be improved, and new products, new business types, and new formats of information consumption suitable for major border areas shall be positively cultivated. The level of governments' public information services shall be improved and the informationization of e-government, e-commerce, remote education, and telemedicine shall be accelerated and promoted, so as to provide local inhabitants with public service information in medical treatment, transportation, public security, employment, protection of rights, and legal consultation. The pilot program of building rural communities shall be thoroughly promoted and the public service capacities of rural areas shall be improved. The building of basic-level public cultural facilities in major border areas shall be strengthened and efforts shall be made to increase the supply of good cultural products carrying forward the socialist core values. (The National Health and Family Planning Commission, the Ministry of Human Resources and Social Security, the Ministry of Civil Affairs, the Ministry of Education, the Ministry of Industry and Information Technology, the Ministry of Finance, the Ministry of Culture, and the State Administration of Press, Publication, Radio, Film and Television shall take charge of the aforesaid work.) | | （二）提升基本公共服务水平。加大对边境地区居民基本社保体系的支持力度，对于符合条件的边民参加新型农村合作医疗的，由政府代缴参保费用。提高新型农村合作医疗报销比例，按规定将边境地区城镇贫困人口纳入城镇基本医疗保险。以边境中心城市、边境口岸、交通沿线城镇为重点，加大对边境基层医疗卫生服务机构对口支援力度。在具备条件的地方实施12年免费教育政策。实行中等职业教育免学费制度。选派教师驻边支教，支持当地教师队伍建设。加大教育对外开放力度，支持边境城市与国际知名院校开展合作办学。加快完善电信普遍服务，加强通信基础设施建设，提高信息网络覆盖水平，积极培育适合沿边重点地区的信息消费新产品、新业态、新模式。提升政府公共信息服务水平，加快推进电子政务、电子商务、远程教育、远程医疗等信息化建设，为当地居民提供医疗、交通、治安、就业、维权、法律咨询等方面的公共服务信息。深入推进农村社区建设试点工作，提高农村公共服务能力。加强沿边重点地区基层公共文化设施建设，着力增加弘扬社会主义核心价值观的优秀文化产品供给。（卫生计生委、人力资源社会保障部、民政部、教育部、工业和信息化部、财政部、文化部、新闻出版广电总局负责） |
| 3. The level of international law enforcement cooperation in border areas shall be improved. Public security authorities in border areas shall be promoted to establish international law enforcement security cooperation departments in provinces (autonomous regions), cities (prefectures, or alliances), and counties (banners) and full-time staff with strong work capabilities shall be selected and allocated. The mechanism of joint conference for international law enforcement cooperation in border areas shall be established, the security situations of neighboring countries and regions shall be researched on a regular basis, and security risks in border areas shall be warned and responded in a timely manner. More efforts shall be made to the authorization of carrying out law enforcement cooperation in border areas, support shall be given to public security authorities in border areas in establishing the partner cooperation mechanism with local law enforcement departments of police affairs, frontier inspection (immigration), and drug control of neighboring countries, and the border law enforcement cooperation in terms of drug control, prohibition of gambling, prevention of and crackdown on terrorism, illegal entry into and exit, human trafficking, and smuggling shall be further strengthened, so as to jointly safeguard the security and stability of border areas. Investment in international law enforcement cooperation in border areas shall be increased. The cultural law enforcement cooperation shall be strengthened, supervision over the cultural market shall be intensified, and the flow of illegal cultural products into the territory of China and the illegal missionary shall be cracked down, so as to build a cultural security barrier in border areas. (The Ministry of Public Security, the Ministry of Foreign Affairs, the Ministry of Culture, and the State Administration for Religious Affairs shall take charge of the aforesaid work.) | | （三）提升边境地区国际执法合作水平。推动边境地区公安机关在省（区）、市（州、盟）、县（旗）三级设立国际执法安全合作部门，选强配齐专职人员。建立边境地区国际执法合作联席会议机制，定期研判周边国家和地区安全形势，及时警示和应对边境地区安全风险。加大对边境地区开展执法合作的授权，支持边境地区公安机关与周边国家地方警务、边检（移民）、禁毒、边防等执法部门建立对口合作机制，进一步加强在禁毒禁赌以及防范和打击恐怖主义、非法出入境、拐卖人口、走私等方面的边境执法合作，共同维护边境地区安全稳定。加大边境地区国际执法合作投入。加强文化执法合作，强化文化市场监管，打击非法文化产品流入和非法传教，构筑边疆地区文化安全屏障。（公安部、外交部、文化部、宗教局负责） |
| II. Improving systems and mechanisms and promoting facilitation for the flow of elements | | 二、改革体制机制，促进要素流动便利化 |
| 4. More efforts shall be made to simply administrative procedures and delegate powers to lower levels. The administrative approval items involved in customs clearance and import and export links in state-level ports of border areas shall be further cancelled and delegated to lower levels, the review standards shall be specified, a commitment on the time limit for handling shall be made, internal approval procedures shall be optimized, and review links shall be reduced. The joint approval and parallel approval shall be accelerated and promoted. The opening-up of border ports shall be enlarged, the procedures for declaration, approval, and acceptance of the opening-up and upgrade of ports and the procedures for temporary opening-up of ports shall be simplified, the approval procedures for construction of border roads and bridges shall be simplified, and the equal establishment and enlarged opening-up of border ports shall be promoted. The interim and ex-post supervision shall be innovated, so as to achieve the combination of decentralization and administration, optimized services, and efficiency and convenience for the people. (The General Administration of Customs, the General Administration of Quality Supervision, Inspection and Quarantine, the Ministry of Public Security, the Ministry of Transport, the Ministry of Foreign Affairs, and the National Development and Reform Commission shall take charge of the aforesaid work.) | | （四）加大简政放权力度。进一步取消和下放涉及沿边国家级口岸通关及进出口环节的行政审批事项，明确审查标准，承诺办理时限，优化内部核批程序，减少审核环节。加快推进联合审批、并联审批。加大沿边口岸开放力度，简化口岸开放和升格的申报、审批、验收程序以及口岸临时开放的审批手续，简化沿边道路、桥梁建设等审批程序，推进边境口岸的对等设立和扩大开放。创新事中事后监管，做到放管结合、优化服务、高效便民。（海关总署、质检总局、公安部、交通运输部、外交部、发展改革委负责） |
| 5. The level of trade facilitation shall be improved. The port regulation mode shall be innovated and unnecessary law enforcement on the scene of port customs clearance shall be pushed forward or backward by means of territorial administration, pre-services, and follow-up inspection. The examination and inspection mechanism shall be optimized, the proportion of non-intrusive and non-interfering examination and inspection shall be further increased, and the examination and inspection efficiency shall be improved. The categorized management shall be implemented and the scope of enterprises' centralized declaration and declaration in advance shall be expanded. According to the principle of being conducive to providing entry and exit convenience for personnel, goods, and means of transportation and strengthening inspection and regulation, the reform of the regulatory service model featured by “relaxing restrictions on the first line” and “safe and efficient control over the second line” shall be deepened in areas under special customs supervision of border areas where conditions permit, and the free and convenient flow of goods in areas under special customs supervision shall be promoted. The connection of the second-line regulatory mode and the first-line regulatory mode shall be promoted. Coordination in border, inland, and coastal customs clearance shall be strengthened and by relying on the platform of e-port, the building of “Single Window” for international trade in border ports shall be promoted, the synchronous transmission of regulation information shall be realized, and the connection of the enterprise operation information and the regulatory system shall be promoted. The institutionalized cooperation with port law enforcement institutions of countries along the “One Belt and One Road” shall be strengthened, the building and sharing of facilities under cross-border common regulation shall be promoted, and the cross-border regulatory cooperation and coordination shall be strengthened. (The General Administration of Customs, the Ministry of Commerce, the Ministry of Public Security, the Ministry of Transport, the Ministry of Finance, the State Administration of Taxation, the General Administration of Quality Supervision, Inspection and Quarantine, the State Administration of Foreign Exchange, and the Ministry of Industry and Information Technology shall take charge of the aforesaid work.) | | （五）提高贸易便利化水平。创新口岸监管模式，通过属地管理、前置服务、后续核查等方式将口岸通关现场非必要的执法作业前推后移。优化查验机制，进一步提高非侵入、非干扰式检查检验的比例，提高查验效率。实施分类管理，拓宽企业集中申报、提前申报的范围。按照既有利于人员、货物、交通运输工具进出方便，又有利于加强查验监管的原则，在沿边重点地区有条件的海关特殊监管区域深化“一线放开”、“二线安全高效管住”的监管服务改革，推动货物在各海关特殊监管区域之间自由便捷流转。推动二线监管模式与一线监管模式相衔接。加强沿边、内陆、沿海通关协作，依托电子口岸平台，推进沿边口岸国际贸易“单一窗口”建设，实现监管信息同步传输，推进企业运营信息与监管系统对接。加强与“一带一路”沿线国家口岸执法机构的机制化合作，推进跨境共同监管设施的建设与共享，加强跨境监管合作和协调。（海关总署、商务部、公安部、交通运输部、财政部、税务总局、质检总局、外汇局、工业和信息化部负责） |
| 6. The level of investment facilitation shall be improved. The opening-up of investment fields shall be enlarged, common international practices shall be used for reference, support shall be given to qualified major border areas in drawing lessons from pilot experience that is replicable and can be promoted of (China) Shanghai Pilot Free Trade Zone and other free trade zones, and the trial implementation of the foreign investment management model of pre-access national treatment plus negative lists shall be conducted. The reform of the commercial system shall be implemented and facilitation of the industrial and commercial registration system in major border areas shall be promoted. Major border areas shall be encouraged to establish a partner contact mechanism with eastern coastal cities, exchange and draw lessons form opening-up experience, and explore the development and opening-up model conforming to the actual situations of border areas. Negotiation with bordering countries shall be strengthened and a sound investment and cooperation mechanism shall be established. (The National Development and Reform Commission, the Ministry of Commerce, the Ministry of Foreign Affairs, and the State Administration for Industry and Commerce shall take charge of the aforesaid work.) | | （六）提高投资便利化水平。扩大投资领域开放，借鉴国际通行规则，支持具备条件的沿边重点地区借鉴上海等自由贸易试验区可复制可推广试点经验，试行准入前国民待遇加负面清单的外商投资管理模式。落实商事制度改革，推进沿边重点地区工商注册制度便利化。鼓励沿边重点地区与东部沿海城市建立对口联系机制，交流借鉴开放经验，探索符合沿边实际的开发开放模式。加强与毗邻国家磋商，建立健全投资合作机制。（发展改革委、商务部、外交部、工商总局负责） |
| 7. Facilitation for personnel exchanges shall be promoted. Cooperation with neighboring countries in the fields of entry and exit administration and frontier inspection shall be strengthened and negotiation with neighboring countries on facilitation for personnel exchanges and other matters shall be positively promoted. The authority of approval for traveling abroad (exiting China) for official business shall be delegated to lower levels and major pilot development and opening-up zones shall be allowed to independently approve personnel at or below the deputy departmental level to perform official tasks in neighboring countries (regions). The port visa policy for foreigners shall be implemented in state-level ports of border areas where conditions permit and qualified foreign affairs offices of the province (or autonomous region) or city (prefecture or alliance) shall be authorized to carry out the consular authorization agency business. Negotiation and cooperation with neighboring countries shall be strengthened, the permission for the free passage of inhabitants of border areas in two neighboring countries within the territorial scope permitted by both countries with valid certificates recognized by both parties shall be promoted, and the same entry and exit policy for inhabitants of border areas shall apply to inhabitants of non-border areas who permanently reside in border cities (prefectures, or alliances) and engage in commercial and trading activities. Entry and exit convenience shall be provided for the investment and cooperation of major foreign-related projects and green entry and exit channels for personnel under cooperation projects with surrounding countries shall be established. According to the will of foreign parties, comprehensive researches on promoting neighboring countries to establish consulates in open cities of major border areas shall be made. Explorations to joint regulation shall be made, the inspection mode of “two checks in one place” in which tourists handle entry and exit formalities in the same place shall be popularized, and the self-service customs clearance by tourists shall be promoted. The capabilities and level of external publicity and presentation of corresponding policies shall be improved. (The Ministry of Foreign Affairs, the Ministry of Public Security, the China National Tourism Administration, the General Administration of Customs, the General Administration of Quality Supervision, Inspection and Quarantine, the War Department of the Headquarters of General Staff of the Chinese People's Liberation Army, and the Publicity Department of the CPC Central Committee shall take charge of the aforesaid work.) | | （七）推进人员往来便利化。加强与周边国家出入境管理和边防检查领域合作，积极推动与周边国家就便利人员往来等事宜进行磋商。下放赴周边国家因公出国（境）审批权限，允许重点开发开放试验区自行审批副厅级及以下人员因公赴毗邻国家（地区）执行任务。在符合条件的沿边国家级口岸实施外国人口岸签证政策，委托符合条件的省（区）、市（州、盟）外事办公室开展领事认证代办业务。加强与毗邻国家协商合作，推动允许两国边境居民持双方认可的有效证件依法在两国边境许可范围内自由通行，对常驻沿边市（州、盟）从事商贸活动的非边境地区居民实行与边境居民相同的出入境政策。为涉外重大项目投资合作提供出入境便利，建立周边国家合作项目项下人员出入境绿色通道。结合外方意愿，综合研究推进周边国家在沿边重点地区开放设领城市设立领事机构。探索联合监管，推广旅客在同一地点办理出入境手续的“一地两检”查验模式，推进旅客自助通关。提高对外宣介相关政策的能力和水平。（外交部、公安部、旅游局、海关总署、质检总局、总参作战部、中央宣传部负责） |
| 8. Facilitation for transport shall be promoted. Negotiation and cooperation with neighboring countries shall be strengthened, the conclusion of protocols for the bilateral automobile transportation agreement between China and Burma and the bilateral automobile transportation agreement between China and North Korea shall be accelerated, and the existing bilateral automobile transportation agreements shall be revised. The mutual recognition of cross-border transport vehicle certificates shall be promoted and convenience and guarantee shall be provided for cross-border transport vehicles in the handling of entry and exit formalities and passage. The authority for approval of entry and exit traveling by self-driving shall be granted to border provinces (autonomous regions) and cities and the conclusion of the relevant agreements on the administration of bilateral entry and exit traveling by self-driving (vehicles with not more than eight seats) shall be positively promoted, so as to facilitate entry and exit by self-driving. (The Ministry of Transport, the China National Tourism Administration, the Ministry of Foreign Affairs, the Ministry of Commerce, the Ministry of Public Security, the General Administration of Customs, and the General Administration of Quality Supervision, Inspection and Quarantine shall take charge of the aforesaid work.) | | （八）促进运输便利化。加强与周边国家协商合作，加快签署中缅双边汽车运输协定以及中朝双边汽车运输协定议定书，修订已有双边汽车运输协定。推进跨境运输车辆牌证互认，为从事跨境运输的车辆办理出入境手续和通行提供便利和保障。授予沿边省（区）及边境城市自驾车出入境旅游审批权限，积极推动签署双边出入境自驾车（八座以下）管理的有关协定，方便自驾车出入境。（交通运输部、旅游局、外交部、商务部、公安部、海关总署、质检总局负责） |
| III. Adjusting the trade structure and vigorously promoting the transformation of trade modes | | 三、调整贸易结构，大力推进贸易方式转变 |
9. Support shall be given to the transformation and upgrading of foreign trade. The internal structure of transfer payment fund arrangements in border areas shall be optimized. The border trade shall be developed in an orderly manner, border trade policies shall be improved, support shall be given to the transformation of small-scale border trade to all-round diversified trade, and the development of offshore trade shall be explored. Support shall be given to major border areas in the development of processing trade, the export of products with high technical content and strong market competitiveness shall be expanded, and demonstration zones for the quality safety of export commodities shall be established. Proper preferences shall be given to resource commodities involved in the administration of quota and import license in processing trade in terms of quota allocation and handling of the relevant licenses. Support shall be given to the development of the processing trade of such commodities with comparative advantages as grain, cotton, fruits and vegetables, and rubber and support of import discount interest shall be given to resource commodities that are imported in the mode of border trade and conform to the Catalogue of Technologies and Products Encouraged for Import. Support shall be given to major border areas in giving play to their geographic advantages, promoting the application of e-commerce, and developing cross-border e-commerce. (The Ministry of Commerce, the National Development Reform Commission, the Ministry of Finance, the Ministry of Industry and Information Technology, the General Administration of Customs, and the General Administration of Quality Supervision, Inspection and Quarantine shall take charge of the aforesaid work.)
．．．．．． | | （九）支持对外贸易转型升级。优化边境地区转移支付资金安排的内部结构。有序发展边境贸易，完善边贸政策，支持边境小额贸易向综合性多元化贸易转变，探索发展离岸贸易。支持沿边重点地区开展加工贸易，扩大具有较高技术含量和较强市场竞争力的产品出口，创建出口商品质量安全示范区。对开展加工贸易涉及配额及进口许可证管理的资源类商品，在配额分配和有关许可证办理方面给予适当倾斜。支持具有比较优势的粮食、棉花、果蔬、橡胶等加工贸易发展，对以边贸方式进口、符合国家《鼓励进口技术和产品目录》的资源类商品给予进口贴息支持。支持沿边重点地区发挥地缘优势，推广电子商务应用，发展跨境电子商务。（商务部、发展改革委、财政部、工业和信息化部、海关总署、质检总局负责）
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