国务院


国务院关于口岸开放的若干规定(附英文)

1985年9月18日，国务院

规定
随着我国对外贸易、国际交往和旅游事业的发展，将进一步开放新的口岸。为加强口岸开放的审批工作，特制定本规定。
一、本规定所指口岸是供人员、货物和交通工具出入国境的港口、机场、车站、通道等。口岸分为一类口岸和二类口岸。一类口岸是指由国务院批准开放的口岸（包括中央管理的口岸和由省、自治区、直辖市管理的部分口岸）；二类口岸是指由省级人民政府批准开放并管理的口岸。
二、口岸的开放和关闭，由国务院或省级人民政府审批后公布执行。
三、凡开放口岸，应根据需要设立边防检查、海关、港务监督、卫生检疫、动植物检疫、商品检验等检查检验机构，以及国家规定的其他口岸机构。
四、两类口岸的具体划分：
（一）以下为一类口岸：
1、对外国籍船舶、飞机、车辆等交通工具开放的海、陆、空客货口岸；
2、只允许我国籍船舶、飞机、车辆出入国境的海、陆、空客货口岸；
3、允许外国籍船舶进出我国领海内的海面交货点。
（二）以下为二类口岸：
1、依靠其他口岸派人前往办理出入境检查检验手续的国轮外贸运输装卸点、起运点、交货点；
2、同毗邻国家地方政府之间进行边境小额贸易和人员往来的口岸；
3、只限边境居民通行的出入境口岸。
五、报批程序：
（一）一类口岸：由有关部（局）或港口、码头、车站、机场和通道所在地的省级人民政府会商大军区后，报请国务院批准，同时抄送国务院口岸领导小组、总参谋部和有关主管部门。
（二）二类口岸：由口岸所在地的人民政府征得当地大军区和海军的同意，并会商口岸检查检验等有关单位后，报请省级人民政府批准。批文同时送国务院口岸领导小组和有关主管部门备案。
六、报批开放口岸应附具下列资料：
（一）对口岸开放进行的可行性研究报告，以及口岸的基本条件、近三年客货运量、经济效益和发展前景的资料。
（二）根据客货运输任务提出的有关检查检验单位、口岸办公室、中国银行等机构设置和人员编制方案。
（三）检查检验场地和办公、生活设施等规划，以及投资预算和资金来源。
七、对外开放前的验收：
（一）新开放的口岸，在开放前必须对其交通安全设施、通信设施、联检场地、检查检验等单位的机构设置和人员配备，以及办公、生活设施等进行验收。验收合格后，才能宣布开放。
（二）一类口岸，由国务院口岸领导小组办公室负责组织验收；二类口岸，由所在省、自治区、直辖市口岸办公室或其他主管口岸工作的部门负责组织验收。
八、临时进出我国非开放区域的审批权限：
（一）临时从我国非开放的港口或沿海水域进出的中、外国籍船舶，由交通部审批，并报国务院口岸领导小组备案。报批前应征得军事主管部门和当地人民政府以及有关检查检验单位的同意，并安排好检查检验工作。
（二）临时从我国非开放机场起降的中、外国籍民用飞机，由中国民用航空局征得军事主管部门同意后审批，非民用飞机由军事主管部门审批，并报国务院口岸领导小组备案。报批前应征得当地人民政府和有关检查检验部门的同意，并安排好检查检验工作。
（三）临时从我国非开放的陆地边界区域进出境的中、外国籍车辆和人员，由省级人民政府审批。报批前应征得当地省军区和公安部门的同意，并安排好检查检验工作。
九、口岸开放应有计划地进行，按隶属关系分别列入国家或地方口岸开放计划。国务院有关部门和省、自治区、直辖市应将口岸开放计划（草案），于计划年度前两个月报国务院口岸领导小组，并抄报国家计委、劳动人事部和检查检验单位的有关主管部门。
十、开放口岸检查检验设施建设资金来源：
（一）中央管理的口岸，由中央负责解决；地方管理的口岸，由地方负责解决。
（二）国家新建开放的港口、码头、车站和机场（含军用改为军民合用的机场）等口岸建设项目（包括利用外资和中外合资项目），以及老口岸新建作业区和经济开发区的新港区等项目，所需联检场地应与港口、码头、车站、机场等主体工程统一规划。所需投资包括在主体工程之内。
检查检验单位办公、生活土建设施（包括宿舍）的投资，由口岸建设项目的主管部门组织有关单位研究，统一汇总报国家计委审批。批准后，投资划拨给口岸所在地的省、自治区、直辖市，由地方统一规划，统一设计施工。军用改建为军民合用机场的口岸项目，应事先征得空军或海军同意，如在机场内建设，建设单位可提出要求，由空军或海军统一规划。
（三）各部（局）直属的原有港口、码头、车站和机场需要对外开放时，所需联检场地，原则上要利用原有建筑设施。如确需扩建、新建，应由港口、码头、车站和机场的主管部门投资建设。检查检验单位的办公、生活土建设施（包括宿舍）的投资，原则上由各自主管部门解决。对确有困难的，国家或地方给予适当补助，由地方统一建设，投资交地方包干使用。
（四）地方新开口岸，所需联检场地和检查检验单位的办公、生活土建设施（包括宿舍），由地方统一投资，统一建设。
（五）国际海员俱乐部的建设规划和投资来源，比照（二）、（三）、（四）项规定解决。
（六）检查检验单位所需的交通工具、仪器设备等，由各自主管部门解决。
（七）联检场地内，划给检查检验单位的办公和业务用房（包括水、电、市内电话），应由港口、码头、车站和机场（包括军民合用的机场）的经营单位免费提供。
十一、本规定由国务院口岸领导小组办公室负责解释。
十二、本规定自发布之日起施行。

PROVISIONS OF THE STATE COUNCIL ON THE OPENING OF PORTS

Important Notice: (注意事项)
英文本源自中华人民共和国务院法制局编译, 中国法制出版社出版的《中华人民
共和国涉外法规汇编》(1991年7月版).
当发生歧意时, 应以法律法规颁布单位发布的中文原文为准.
This English document is coming from the "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.

Whole Document (法规全文)
PROVISIONS OF THE STATE COUNCIL ON THE OPENING OF PORTS
(Promulgated on September 18, 1985)
With the development of our foreign trade, international exchanges and
tourisms, more ports will be opened. These Provisions are formulated in
order to strengthen the work in the examination and approval for opening
ports to foreign countries.
1. The term "ports" referred to in these Provisions denotes the harbours,
airports, stations, thoroughfares, etc., which are used for personnel,
goods or means of transport to enter or leave the country. The ports in
our country are divided into two categories. Category-1 ports refer to
those ports which have been opened upon the approval of the State Council
(including those administered by the Central Government and some of the
ports administered by the provinces, autonomous regions and municipalities
directly under the Central Government); category-2 ports refer to those
ports which have been opened upon approval by the people's governments at
the provincial level and are administered by them.
2. The opening and closing of ports shall be announced and executed after
the examination and approval by the State Council or the people's
governments at the provincial level.
3. Organs in charge of frontier inspection, Customs, harbour
superintendency, quarantine, quarantine for animals and plants, commodity
inspection, etc., as well as other port organs stipulated by State shall
be set up at the open ports according to the actual needs.
4. Criteria for the division of the two categories of ports:
(1) The following are category-1 ports:
A. ports open to vessels, planes, vehicles and other means of transport of
foreign nationality used to transport passengers and goods into or out of
China through sea, land or air;
B. ports for use only by Chinese vessels, planes and vehicles transporting
passengers and goods out of or into the country through sea, land or air;
C. spots on the sea within our territorial waters where vessels of foreign
nationality are allowed to enter or leave for the purpose of delivering
goods.
(2) The following are category-2 ports:
A. spots for loading and unloading, starting shipment and delivering goods
for Chinese vessels engaged in foreign trade where the formalities for
exit and entry inspection and examination are conducted by personnel sent
from other ports;
B. ports where border trade in small amounts and contacts between people
are carried out with local governments of neighbouring countries;
C. ports restricted to the exit or entry of the local residents in the
border areas.
5. The procedures for report and approval:
(1) Category-1 ports: the relevant ministries (or bureaus) or the people's
governments of the provinces where the harbours, wharves, stations,
airports and thoroughfares in question are situated shall, after
consultation with the military area commands, submit the application to
the State Council for approval, with copies of the application sent to the
Leading Group for Port Affairs of the State Council, the Headquarters of
the General Staff of the People's Liberation Army and the relevant
competent departments.
(2) Category-2 ports: The people's governments of the regions where the
ports in question are situated shall first obtain the agreement of the
military area commands concerned and the Navy, and hold consultations with
the units in charge of port inspection and examination. Applications shall
then be submitted to the people's governments at the provisional level for
approval, with copies of which sent to the Leading Group for Port Affairs
under the State Council and the relevant competent departments for the
record.
6. The following materials should be attached to application for opening a
port:
(1) A feasibility report, the materials concerning the basic conditions of
the ports, the volume of passenger transport and freight volume in the
last three years, and the potential economic results and the prospects for
development.
(2) The plan for the establishment of such port organs as offices in
charge of inspection and examination, offices for port affairs and
branches of the Bank of China, according to the task for transporting
passengers and goods.
(3) Plans for constructing inspection and examination grounds and for
building facilities for office work and the daily life of the staff
members, as well as investment budget and source of funds.
7. Final check-up and acceptance before a port is opened:
(1) Before a new port is opened, the establishment of organs and the
provisions of staff members of offices in charge of traffic safety, for
telecommunications, combined inspection and examination as well as
facilities for office work and daily life must go through the procedure of
final check-up and acceptance. New ports may be opened only after the
facilities are finally checked and accepted.
(2) The office of the Leading Group for Port Affairs of the State Council
shall be responsible for the check-up and acceptance of category-1 ports.
The offices for port affairs in the provinces, autonomous regions and
municipalities directly under the Central Government or other competent
departments in charge of port affairs shall be responsible for the check-
up and acceptance of category-2 ports.
8. The competence for examination and approval of applications for
temporarily entry and exit at the non-open areas of our country:
(1) Applications by vessels of Chinese or foreign nationality for
temporarily entry or exit at non-open harbours or coastal waters of China
shall be examined and approved by the Ministry of Communications and
reported to the Leading Group for Port Affairs of the State Council for
the record. Before the applications are submitted for approval, the
agreement of the competent authorities for military affairs, the local
people's governments and the relevant units in charge of examination and
inspection shall be obtained, and the details of the examination and
inspection work shall be arranged.
(2) Applications by civil planes of Chinese or foreign nationality for
temporarily take-offs or landings at China's non-open airports shall be
examined and approved by the Civil Aviation Administration of China,
which, however, should obtain the agreement of the competent authorities
for military affairs. Applications by non-civil planes shall be examined
and approved by the competent authorities for military affairs. Both kinds
of applications must be reported to the Leading Group for Port Affairs of
the State Council for the record. Before the applications are submitted
for approval, the agreement of the local people's governments and the
relevant departments for examination and inspection should be obtained,
and the details of the examination and inspection work shall be arranged.
(3) Applications by vehicle and personnel of Chinese or foreign
nationality for temporarily entry and exit at our non-open border areas on
land shall be examined and approved by the people's governments at the
provincial level. Before the applications are submitted for approval, the
agreement of the relevant provincial military area command and the
department of public security shall be obtained, and the details of the
examination and inspection work shall be arranged.
9. New ports shall be opened according to the relevant State or local
plans. The competent departments under the State Council, and the
provinces, autonomous regions and municipalities directly under the
Central Government, shall send plans (drafts) of opening ports to the
Leading Group for Port Affairs of the State Council two months before a
planned year begins, with copies sent to the State Planning Commission,
the Ministry of Labour and Personnel and the relevant competent
departments of the units in charge of inspection and examination.
10. The sources of funds for building facilities for inspection and
examination at the open ports:
(1) The Central Government shall be responsible for providing the funds
for the ports under its administration. The local people's governments
shall be responsible for providing funds for the ports under their
administration.
(2) Where grounds for combined inspection and examinations are needed in
such port construction projects (including projects with foreign
investment and Chinese and foreign equity joint-venture projects) as
harbours, wharves, railway stations and airports (including those which
have been transformed from military airports used for both military and
civilian purposes) as well as in such projects as newly-built operation
areas at old ports and new harbour areas in economic development zones,
the construction of these grounds shall be incorporated into the plans of
the main projects of the prescribed harbours, wharves, railway stations
and airports. The investment needed for the construction of these grounds
shall be incorporated in the investment for the main projects. The
competent departments for port construction projects shall organize the
relevant units to carry out research on the investment structure for the
construction of the facilities for office work and for the daily life of
the staff members (including dormitories) of the units in charge of
inspection and examination and present itemized reports to the State
Planning Commission for examination and approval. After the approval is
obtained, the investment shall be transferred to the provinces, autonomous
regions and municipalities directly under the Central Government where the
ports are situated. The local people's governments shall be responsible
for the unified planning, designing and construction of the ports. Where
military airports are to be transformed into airports for both military
and civilian purposes, agreement should be obtained from the Air Force or
the Navy beforehand. In the case that the construction is to be carried
out within the airports, the units responsible for the construction may
submit draft plans, which shall be incorporated in the unified plans of
the Air Force or the Navy.
(3) Where the existing harbours, wharves, railway stations and airports
directly under the administration of various ministries (or bureaus) need
to be opened, the grounds for combined inspection and examination for
these ports shall, in principle, be set up by making use of the existing
buildings and facilities. If it is necessary to extend the original
buildings or build new grounds for combined inspection and examination,
the competent departments for the harbours, wharves, railway stations and
airports shall be responsible for the investment. The investment for the
construction of the facilities for office work and the daily life of the
staff members (including dormitories) of the units in charge of inspection
and examination shall, in principle, be provided by their respective
competent departments. In the extreme cases of difficulty with respect to
investment, the State or the local governments may provide appropriate
subsidies. The investment shall be turned over to the relevant people's
governments, which are held responsible for the completion of the
construction.
(4) The local people's governments shall be responsible for the investment
and construction of the grounds for combined inspection and examination
and the infrastructure facilities for office work and the daily life of
the staff members (including dormitories) of the units in charge of
inspection and examination, which are needed in their newly-opened ports.
(5) The construction plans and sources of investment for international
seamen's clubs shall be provided in accordance with the provisions of
Paragraphs (2), (3) and (4) of this Article.
(6) The means of transport, instruments, equipment, etc., needed by the
units in charge of inspection and examination shall be provided by their
respective competent departments.
(7) Within grounds for combined inspection and examination, the rooms for
office work and other related purposes (including water, electricity and
inner-city telephone) which have been assigned to the units in charge of
inspection and examination shall be provided free of charge by the
business units of the harbours, wharves, railway stations and airports
(including those used for both military and civilian purposes).
11. These Provisions shall be interpreted by the office of the Leading
Group for Port Affairs of the State Council.


论一级政府的责任

长期以来，全国各地经常听说发生某某事故或某地发生某种不法行为或其他某些急需处理的事件时，由于职责不清，各个政府部门间互相推诿从而使得应当及时处理的事件长期得不到处理，结果人民群众的利益受到很大损害。
我始终不明白，发生上述事件时，我们的一级政府跑哪去了？
需知，部门并不是一级政府。
宪法和法律并没有直接赋予某个行政部门以全面保护人民或公民生命、自由、财产及其他合法权益的法定职责，而是将该种职责直接赋予了一级政府，如中华人民共和国中央人民政府即国务院、省级政府、市级政府、县级政府，最后是乡镇人民政府。而且，宪法和法律授予了一级政府制定行政措施、发布行政命令的职权，那么我就产生了疑问：当上述损害人民或公民权益的事件发生时，我们的一级政府干什么去了？
前几天发生了“食人鱼”的事件，许多政府部门说没有处理的权力，那么面对这一严重危及国家生物、生态和环境安全的事件，我们的一级政府应当做些什么？
按属地管辖的原则，发生该事件的当地政府完全可以发布行政措施或行政命令加以处理嘛！乡镇政府权威不够，他可以请求县级政府处理嘛，县级政府权威不够他可以申请省级下令处理嘛，最后还可以到国务院请求处理，有什么不可以呢？
甚至如果国务院认为事件重大超出自身权限的，国务院总理也可以先行作出紧急行政命令予以暂时处理（这叫行政应急措施，不仅不违背依法行政原则，而且是法治政府的应尽责任，而不能以超越权限为由拖延解决），随后及时向全国人大常委会提交立法议案或请求对该重大事件的处理决定（人大有重大事项决定权）。这才是现代法治政府应该做的事。
从法律上说，宪法和法律对一级政府的授权事项中，对于保护人民或公民生命、自由、财产及其他合法利益免受侵犯方面的法定职权是没有遗漏的。法律是采用列举和概括相结合的授权方式，而且列举的权限也是很概括的，一级政府行使权力的自由度是相当大的，几乎不存在行政管理的真空。如果说有行政管理的真空，那就是政府尚未尽到法定的职责（义务）。
当政府增加了一项行政措施，当然会影响行政相对人即当事公民（法人、其他组织）的权益，比如禁止经营“食人鱼”或发布消灭该种鱼类的命令必然会影响养鱼人的权益。按法治精神，对公民（或法人、其他组织）来说，法不禁止即自由，因此此前的经营行为是合法的，而合法行为受到新的行政命令的影响而使其利益受到了损失，那么人民政府应当加以合理的处理，比如给予养鱼人以一定的补偿。而且，如果养鱼人对行政措施或行政处罚不服的，可以提起行政诉讼，由人民法院最终对政府行为的合法性加以裁断。这是法治国家处理政务的应有程序。
而绝不能允许危害人民或公民权益的事件没有人管的情形出现。
这是深入学习和贯彻“三个代表”重要思想应有实践。
这是依法治国的应有实践。

王树青　辽宁大学2001级法律硕士研究生
2003年1月11日星期六