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                        >政務公開>法規公文>政府文件>市政府辦公廳文件
                        索引號: 0022779351/2019-00059 主題分類: 市場監管、安全生產監管
                        發文日期: 2019-05-05 公開方式: 主動公開
                        文號: 哈政辦規〔2019〕10號

                        哈爾濱市人民政府辦公廳關于印發哈爾濱市全面推開“證照分離”改革工作推進方案的通知

                        哈政辦規〔2019〕10號


                        各區、縣(市)人民政府,市政府各委、辦、局,各有關單位:

                          經市政府同意,現將《哈爾濱市全面推開“證照分離”改革工作推進方案》予以印發,請認真貫徹執行。


                        哈爾濱市人民政府辦公廳
                        2019年5月5日


                        哈爾濱市全面推開“證照分離”改革工作推進方案


                          為全面貫徹落實《國務院關于在全國推開“證照分離”改革的通知》(國發〔2018〕35號)和《黑龍江省人民政府辦公廳關于印發黑龍江省全面推開“證照分離”改革實施方案的通知》(黑政辦規〔2018〕62號)精神,深入推進簡政放權,破解市場主體“辦照容易辦證難”問題,有效降低企業制度性交易成本,激發市場主體活力,加快推進政府職能深刻轉變,營造法治化、國際化、便利化營商環境,在總結哈爾濱新區“證照分離”改革試點經驗基礎上,結合我市實際,制定本方案。

                          一、總體要求

                          (一)指導思想

                          全面貫徹黨的十九大和十九屆二中、三中全會精神,堅持以習近平新時代中國特色社會主義思想為指導,按照黨中央、國務院決策部署,牢固樹立和貫徹落實新發展理念,緊緊圍繞簡政放權、放管結合、優化服務,落實“證照分離”改革要求,進一步厘清政府與市場的關系,全面改革審批方式,精簡涉企證照,加強事中事后綜合監管,創新政府管理方式,進一步營造穩定、公平、透明、可預期的市場準入環境,充分釋放市場活力,推動全市經濟高質量發展。

                          (二)基本原則

                          ——突出照后減證,能減盡減,能合則合。除涉及國家安全、公共安全、金融安全、生態安全和公眾健康等重大公共利益外,分別采用適當管理方式將許可類的“證”分離出來,盡可能減少審批發證,有效區分“證”“照”功能,著力破解“準入不準營”難題。 

                          ——做到放管結合,放管并重,寬進嚴管。該放給市場和社會的權一定要放足、放到位,該政府管的事一定要管好、管到位。始終把放管結合置于突出位置,做好審批和監管的有效銜接,從事前審批向強化事中事后監管轉變,加強綜合監管。

                          ——堅持依法改革,于法有據,穩妥推進。做好頂層設計,依法推動對涉企行政審批事項采取直接取消審批、審批改為備案、實行告知承諾、優化準入服務等改革方式,涉及修改地方性法規、政府規章和規范性文件的,按法定程序修改后實施。

                          (三)工作目標

                          對國務院確定的第一批106項中我市44項涉及企業、個體工商戶、農民專業合作社(以下統稱企業)的行政審批事項,分別按照實行告知承諾、優化準入服務等兩種方式實施“證照分離”改革。加強事中事后監管,建立部門間信息共享、協同監管和聯合獎懲機制,形成全過程監管體系。建立長效機制,做到成熟一批復制推廣一批,逐步減少涉企行政審批事項,對所有涉及市場準入的行政審批事項按照“證照分離”改革模式進行分類管理,實現全覆蓋,為企業進入市場提供便利。

                          二、工作任務

                          (一)分類改革涉企行政審批事項

                          對納入“證照分離”改革范圍的我市44項涉企行政審批事項,采取以下兩種方式進行管理。

                          1.簡化審批,實行告知承諾。對暫時不能取消審批,但通過事中事后監管能夠糾正不符合審批條件行為的行政審批事項,實行告知承諾。各有關部門要履職盡責,制作告知承諾書,并向申請人提供示范文本,一次性告知申請人審批條件和所需材料;對申請人承諾符合審批條件并提交有關材料的,應當當場辦理審批。市場主體要誠信守諾,達到法定條件后再從事特定經營活動。各有關部門要實行全覆蓋例行檢查,發現實際情況與承諾內容不符的,依法撤銷審批并予以從重處罰。(責任單位:市文廣旅游局、市城管局、市公安局、市交通運輸局、市衛生健康委、市市場監管局)

                          2.完善措施,優化準入服務。對關系國家安全、公共安全、金融安全、生態安全和公眾健康等重大公共利益的行政審批事項,保留審批,優化準入服務。對企業關心的難點痛點問題,要通過精簡審批材料、公示審批事項和程序、壓縮審批時限、明確受理條件和辦理標準、減少審批環節、科學設計流程、下放審批權限,增強審批透明度和可預期性,提高登記審批效率。(責任單位:市文廣旅游局、市交通運輸局、市財政局、市衛生健康委、市住建局、市體育局、市糧食局、市金融局、市商務局、市市場監管局、市農業農村局、市公安局、市應急管理局、市城管局)

                          各有關部門要對照《第一批哈爾濱市推開“證照分離”改革事項及任務分工表》,參照中省直有關單位做法,逐一出臺具體管理措施,明確審批實施層級、受理條件、辦理標準、監管方式、監管措施,規范業務流程、提交材料和相關文書。同時,指導各區縣(市)推進落實“證照分離”改革工作,匯總整理“證照分離”相關材料,并向社會公開。(牽頭單位:市市場監管局;責任單位:市各有關部門,各區縣市政府)。

                          (二)推進信息歸集共享,實現互聯互通

                          依托市政務服務網等已有設施資源,進一步完善國家企業信用信息公示系統(黑龍江),在更大范圍、更深層次實現市場主體基礎信息、相關信用信息、違法違規信息歸集共享、互聯互通和業務協同。

                          市場監管部門應當按照統一的數據標準,通過市政務服務網,將企業登記信息及時推送告知給市各有關部門,市各有關部門負責實現自動接收、導入信息,并在本系統內實現上下互通和信息共享。進一步加快推進市政務服務網與市信用平臺的互聯互通,并通過市政務服務網,實現相關部門之間的信息共享和業務協同。

                          加快完善市政府部門涉企信息資源歸集目錄,推進“全國統一標準的企業法人單位基礎信息資源庫”應用。健全市場監管部門與行政審批部門、行業主管部門之間備案事項目錄和后置審批事項目錄的動態維護機制。

                          加強審批與監管有效銜接,強化公示信息歸集,各行政審批部門、行業主管部門應當將備案事項、后置審批事項等信息歸集至市政務服務網,記于相對應市場主體名下,并通過“信用中國”網站和國家企業信用信息公示系統對外公示。(牽頭單位:市政府辦公廳、市營商環境局;責任單位:市各有關部門,各區縣市政府)

                          (三)加強事中事后監管

                          加快建立以信息歸集共享為基礎、以信息公示為手段、以信用監管為核心的新型監管制度,切實貫徹“誰審批、誰監管,誰主管、誰監管”原則。各行業主管部門應當切實承擔監管責任,針對改革事項分類制定和完善監管辦法,明確監管標準、監管方式和監管措施,加強公正監管,避免出現監管真空。全面推進“雙隨機、一公開”監管,按照國家和省統一的“雙隨機”抽查工作機制和制度規范,逐步實現跨部門“雙隨機”聯合抽查常態化,推進抽查檢查信息統一歸集和全面公開,落實完善懲罰性賠償、“履職照單免責、失職照單問責”等制度,探索建立監管履職標準,明確基層監管部門履行“雙隨機”抽查的權責。進一步實施失信聯合懲戒,健全跨區域、跨層級、跨部門協同監管機制,建立統一“黑名單”制度,對失信主體在行業準入環節依法實施限制。探索對新技術、新產業、新模式、新產品、新業態采取包容審慎的監管方式,著力為新動能成長營造良好政策環境。強化企業的市場秩序第一責任人意識,完善信用修復機制,更好發揮專業服務機構的社會監督作用,引導社會力量共同參與市場秩序治理,逐步構建完善多元共治格局。(牽頭單位:市市場監管局;責任單位:市各有關部門,各區縣市政府)

                          (四)統籌推進“證照分離”和“多證合一”改革

                          通過“證照分離”改革,有效區分“證”“照”功能,讓更多市場主體持照即可經營,著力解決“準入不準營”問題。市各有關部門要針對中省直相關單位“證照分離”改革后的涉企事項研究結果配合開展工作,對屬于信息采集、記載公示、管理備查類等事項,原則上要通過“多證合一”改革盡可能整合到營業執照上,真正實現市場主體“一照一碼走天下”。(牽頭單位:市市場監管局;責任單位:市各有關部門)

                          三、工作要求

                          (一)加強組織領導

                          市政府成立全面推開“證照分離”改革工作協調小組,組長由分管副市長擔任,副組長由市市場監管局主要負責人擔任,成員由市司法局、市文廣旅游局、市城管局、市交通運輸局、市住建局、市商務局、市農業農村局、市衛生健康委、市應急管理局、市金融局、市財政局、市體育局、市糧食局等部門主要負責人及市政府辦公廳、市公安局有關負責人擔任,負責協調市各有關部門、指導各區縣(市)推進落實“證照分離”改革工作,研究解決改革工作中遇到的問題。協調小組辦公室設在市市場監管局,主要負責小組日常工作,協調市各有關部門全面推開“證照分離”改革工作。各區縣(市)政府要參照市的模式成立相應機構,層層壓實責任,積極穩妥推進“證照分離”改革工作。市各有關部門要加強行業指導和監督,針對具體改革事項,細化舉措和事中事后具體監管措施。涉及機構改革的部門,要按照調整后的職能抓好有關工作落實。市各有關部門要于本《通知》印發之日起10個工作日內,將本單位的具體措施報送市市場監管局,由市市場監管局匯總后報省市場監管局備案,并同步向社會公開。(牽頭單位:市市場監管局,責任單位:市各有關部門,各區縣市政府)

                          (二)積極做好法治保障。履行各項行政權力,包括從行為到程序、從內容到形式、從決策到執行,均須在法律和制度的框架內運行。要根據實行告知承諾、優化準入服務等不同的改革方式,有針對性地研究完善事中事后監管措施等配套制度,推動政府規章和規范性文件的立改廢工作。要嚴格規范執法程序,加強執法監督。(牽頭單位:市市場監管局、市司法局、市政府辦公廳;責任單位:市各有關部門、各區縣市政府)

                          (三)強化宣傳培訓。市有關部門要綜合利用各種宣傳渠道和媒介,用通俗易懂的方式,全面、準確宣傳改革的目的、意義和內容,擴大各項改革政策的知曉度,及時回應社會關切,營造有利于改革的良好氛圍。要加強培訓,提升工作人員的業務素質和服務意識,切實改善群眾辦事實際體驗,推動改革舉措落到實處、取得實效。(牽頭單位:市市場監管局;責任單位:市各有關部門,各區縣市政府)

                          (四)狠抓工作落實。各地區、各有關部門要以釘釘子精神全面抓好改革各項任務落實,健全激勵約束機制和容錯糾錯機制,充分調動推進改革的積極性和主動性,鼓勵和支持創新開展工作。要按照省、市“深化機關作風整頓”工作要求,全面深化“四零”服務承諾創建,提升服務標準。要強化督查問責,對抓落實有力有效的,適時予以表彰;對未依法依規履行職責的,要嚴肅問責。要建立全面推開“證照分離”改革月報告制度,從2019年5月起,市各有關部門應于每月8日前將《“證照分離”改革推進情況月統計表》報送市市場監管局。(牽頭單位:市市場監管局;責任單位:市各有關單位,各區縣市政府)

                          附件:第一批哈爾濱市全面推開“證照分離”改革事項及任務分工表.docx     
                             第一批“證照分離”事項告知承諾指引.docx
                             “證照分離”改革推進情況月統計表.docx


                          相關解讀:《哈爾濱市全面推開“證照分離”改革工作推進方案》解讀 


                        (來源:市政府辦公廳)
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