The People's Republic of China


Decree of the State Council of the People's Republic of China

No. 431

Regulations on Letters and Visits, adopted at the 76th Executive Meeting of the State Council on January 5, 2005, are hereby promulgated and shall be effective as of May 1, 2005.

Premier Wen Jiabao

January 10, 2005

Regulations on Letters and Visits

(Adopted at the 76th Executive Meeting of the State Council on January 5, 2005, promulgated by Decree No. 431 of the State Council of the People's Republic of China on January 10, and effective as of May 1, 2005)

Chapter I General Provisions

Article 1 These Regulations are formulated for the purposes of enhancing relations between the people's governments at all levels and the people, protecting the lawful rights and interests of letter-writers and visitors, and maintaining a good order in letter-writing and visiting.

Article 2 The term "letters and visits" in these Regulations means that citizens, legal persons or other organizations give information, make comments or suggestions or lodge complaints to the people's governments at all levels and the relevant departments of the people's governments at or above the county level through correspondence, E-mails, faxes, phone calls, visits, and so on, which are dealt with by the relevant administrative departments according to law.

A citizen, legal person or any other organization that gives information, makes comments or suggestions or lodges complaints by such means as prescribed in the preceding paragraph is defined as a letter-writer or visitor.

Article 3 The people's governments at all levels and the relevant departments of the people's governments at or above the county level shall effectively handle letters and visits by conscientiously dealing with letters, receiving visitors, heeding people's comments, suggestions and complaints and accepting their supervision, so that the people's interests are best served.

The people's governments at all levels and the relevant departments of the people's governments at or above the county level shall keep free-flowing channels for letter-writers and visitors and provide convenience for the letter-writers or visitors who give information, make comments or suggestions, or lodge complaints by such means as prescribed in these Regulations.

No organization or individual may retaliate against letter-writers or visitors.

Article 4 The work regarding letters and visits shall be done under the leadership of the people's governments at all levels and in adherence to the principles of territorial jurisdiction, responsibilities assumed at different levels, the department in charge being the department responsible and combination of the need to solve problems lawfully, timely and locally with persuasion.

Article 5 The people's governments at all levels and the relevant departments of the people's governments at or above the county level shall make policy decisions in a scientific and democratic manner, perform their duties according to law and prevent contradictions and disputes at source from leading to letters and visits.

Any people's government at or above the county level shall establish a work pattern for letters and visits characterized by unified leadership, coordination among different departments, overall planning and all-round consideration, seeking both temporary and permanent solution, each assuming its own responsibilities and joining efforts with others for the common goal, and it shall resolve contradictions and disputes in a timely manner by holding joint meetings and setting up a mechanism for making investigation and coordination and handling letters and visits and a working system of supervision in this respect.

Responsible persons of the people's governments at all levels and the relevant departments of the people's governments at or above the county level shall read letters for important issues and give written instructions on them, receive visitors for important issues, listen to reports on the work regarding letters and visits, and study and solve overriding problems in such work.

Article 6 Any people's government at or above the county level shall set up a department for letters and visits. The relevant department of the people's government at or above the county level and the people's government of the town or township shall, according to the principles of facilitating work and creating convenience for letter-writers and visitors, respectively assign a unit responsible for the work regarding letters and visits (hereinafter referred to as the unit for letters and visits) or individuals the specific reasonability for work in this field.

The department for letters and visits of the people's government at or above the county level is the administrative department of the people's government at the corresponding level which is responsible for the work regarding letters and visits and performs the following duties:

(1) to accept the letter-or-visit matter presented by a letter-writer or visitor, transmit it to another organ, or assign another organ to handle it;

(2) to handle the letter-or-visit matter handed over by the people's government at a higher level or at the corresponding level;

(3) to coordinate efforts in handling important letter-or-visit matters;

(4) to urge and examine the handling of letter-or-visit matters;

(5) to study and analyze both letters and visits, conduct investigation and study and, in a timely manner, make suggestions on improving policies and work to the people's government at the corresponding level; and

(6) to provide guidance to other relevant departments of the people's government at the corresponding level and the departments or units for letters and visits of the people's governments at lower levels in their work regarding letters and visits.

Article 7 The people's governments at all levels shall establish and improve the responsibility system for letters and visits, and shall, in strict accordance with the provisions of the relevant laws, administrative regulations and these Regulations, investigate the individuals who are responsible for malfeasance or dereliction of duty committed in the work regarding letters and visits and circulate a notice of the matter within an appropriate scope.

The people's governments at all levels shall incorporate the achievements scored in the work regarding letters and visits into the performance assessment of public servants.

Article 8 The relevant administrative organ or unit shall give rewards to the letter-writer or visitor who, by giving information or presenting comments or suggestions in its letter or visit, has made contributions to the national economic and social development, and to the improvement of the work of State organs and the protection of public interests.

The relevant administrative organ shall give rewards to the unit or individual that has scored outstanding achievements in the work regarding letters and visits.

Chapter II Channels for Letters and Visits

Article 9 The people's governments at all levels and the relevant departments of the people's governments at or above the county level shall make known to the public such matters as the correspondence and E-mail addresses, telephone numbers for complaints, time and places for receiving letters and visitors, methods of inquiring about the progress and results of the letter-or-visit matters handled.

The people's governments at all levels and the relevant departments of the people's governments at or above the county level shall, at the places for receiving letters and visitors or at the websites, make known to the public the laws, regulations and rules, the procedures for handling letter-or-visit matters and other matters concerning provision of convenience to letter-writers and visitors.

Article 10 The people's governments at the level of a city divided into districts and those at the county level and their relevant departments and the people's governments of towns or townships shall establish the system of reception day on which the responsible persons of administrative organs read letters and receive visitors, and coordinate efforts in handling letter-or-visit matters. Letter-writers and visitors can report letter-or-visit matters face to face to the responsible persons of the administrative organs at the publicized reception place on the publicized reception day.

Responsible persons of the people's government at or above the county level and of the relevant departments of the said government or the individuals designated by them may go to the places where the letter-writers or visitors live to talk to them face to face and exchange views with them with regard to the overriding problems they have reported.

Article 11 The department for letters and visits of the State shall, by making full use of the existing network resources for governmental affairs information, establish a national information system for letters and visits, in order to provide convenience for letter-writers and visitors to present letter-or-visit matters and inquire about the handling of the letters and visits locally.

The local people's government at or above the county level shall, by making full use of the existing network resources for governmental affairs information, establish or designate the information system for letters and visits within its administrative areas and connect its information system for letters and visits with those of the people's governments at higher levels, their relevant departments and the people's governments at lower levels.

Article 12 The department for letters and visits or any other relevant departments of the people's government at or above the county level shall, in a timely manner, input the complaint lodged by a letter-writer or visitor into the information system for letters and visits. The letter-writer or visitor may, on the strength of the complaint acceptance certificate issued by the administrative organ, go to the department for letters and visits or the reception place of the relevant department of the local people's government to inquire about the handling of the complaint. The specific measures and procedures therefor shall respectively be formulated by the people's government of a province, autonomous region or municipality directly under the Central Government.

Article 13 In light of the actual needs in the work regarding letters and visits, the people's governments at the level of a city divided into districts and those at the county level may establish a working mechanism in which the government plays the leading role and all sectors of society take part and which facilitates rapid settlement of disputes.

The departments and units for letters and visits shall organize the relevant public organizations, legal aid agencies, professionals, volunteers and others to joint efforts in handling complaints lodged by letter-writers and visitors in a lawful, timely and reasonable way through advice, education, consultation, mediation, hearing, or by other means.

Chapter III Presenting Letter-or-visit Matters

Article 14 Where a letter-writer or visitor gives information or makes comments or suggestions on the performance of duties by the following organizations or individuals, or is not satisfied with the performance of duties by the following organizations or individuals, it may present letter-or-visit matters to the relevant administrative organs:

(1) administrative organs or their staff members;

(2) organizations that are authorized by laws or regulations to perform the functions of administration of public affairs, or their staff members;

(3) enterprises or institutions providing public service, or their staff members;

(4) individuals in public organizations or other enterprises or institutions who are appointed or dispatched by administrative organs of the State; and

(5) villagers' committees, residents' committees or their members.

With regard to the complaints that shall be handled according to law through litigation, arbitration, administrative reconsideration or other statutory means, the letter-writer or visitor shall present them to the relevant organs according to the procedures as provided for by the relevant laws and administrative regulations.

Article 15 With regard to a letter-or-visit matter that falls within the scope of the functions and powers of the people's congresses at all levels, the standing committee of the people's congress at or above the county level, the people's court or the people's procuratorate, the letter-writer or visitor shall present it to the people's congress, its standing committee, people's court or people's procuratorate respectively and abide by the provisions of Articles 16, 17, 18, 19 and 20 of these Regulations.

Article 16 Where a letter-writer or visitor intends to present a letter-or-visit matter through visit, it shall present the letter-or-visit matter to the organ at the corresponding level or the next higher level that, according to law, has the power to handle the letter-or-visit matter. If a letter-or-visit matter has been accepted or is in the process of being handled and the letter-writer or visitor, before the expiration of the time limit, presents the same letter-or-visit matter to the organ at the higher level of the organ that has accepted and is handling the letter-or-visit matter, the former shall not accept the letter-or-visit matter.

Article 17 A letter-writer or visitor shall, in general, present a letter-or-visit matter through correspondence, E-mail, fax or any other written form. Where it lodges a complaint, it shall, in addition, state clearly its name (title), address, requests, the facts and reasons.

With regard to the oral presentation of a complaint, the relevant organ shall record the name (title) and address of the letter-writer or visitor, its requests, the facts and reasons.

Article 18 Where a letter-writer or visitor who intends to present a letter-or-visit matter through visit, it shall go to the reception place established or designated by the organ concerned.

Where two or more letter-writers or visitors intend to present the same letter-or-visit matter through visit, they shall choose representatives, and the number of representatives shall not exceed five.

Article 19 A letter-writer or visitor shall be objective in presenting letter-or-visit matters, the letter-or-visit matters presented shall be true to facts, and it shall be responsible for the truthfulness of the contents of the materials it provides. It shall not make up stories, distort facts, frame or bring a false charge against others.

Article 20 Letter-writers and visitors shall, in the course of writing letters or making visits, abide by laws and regulations, shall not harm the interests of the State, society or the collective or infringe upon the lawful rights of other citizens, shall conscientiously maintain public order and the order in handling letters and visits, and shall not commit any of the following acts:

(1) illegally assembling around offices of State organs or public places, encircling and attacking State organs, intercepting official vehicles, or jamming and obstructing traffic;

(2) carrying dangerous articles or tools under control;

(3) humiliating, beating up or threatening functionaries of State organs or illegally restricting other people's freedom of the individual;

(4) staying and making trouble at the reception places for letters and visits, or leaving the individuals who are unable to look after themselves at such places;

(5) inciting, colluding with, coercing or enticing with money or things of value others to write letters or make visits, or manipulating from behind the scenes others into doing so, or taking advantage of letters and visits to accumulate wealth; or

(6) committing other acts that disrupt public order or impair national or public security.

Chapter IV Accepting Letter-or-visit Matters

Article 21 The department for letters and visits of the people's government at or above the county level shall, upon receiving a letter or visit, register the letter-or-visit matter presented and handle it on the merits of each case within 15 days in the following ways:

(1) With regard to a letter-or-visit matter specified in Article 15 of these Regulations, notify the letter-writer or visitor that it presents such matter to the people's congresses or its standing committee, people's court or people's procuratorate respectively; and reject the matter which has been or shall be handled according to law through litigation, arbitration, administrative reconsideration or any other statutory means, while notifying the letter-writer or visitor that it presents the matter to the organ concerned according to the procedures as provided for by the relevant laws or administrative regulations.

(2) With regard to a letter-or-visit matter which shall be handled and decided on by the people's government at the corresponding level or the department thereof according to their statutory functions and duties, transfer such matter to the administrative organ which has the power to handle it; or make timely suggestions and submit such matter to the people's government at the corresponding level for decision in case of any important or urgent matter.

(3) With regard to a letter-or-visit matter which involves an administrative organ at a lower level or its staff members, directly transfer such matter to the administrative organ which has the power to handle it according to the principles of territorial jurisdiction, responsibilities assumed at different levels, and the department in charge being the department responsible, and send a copy of the matter to the department or unit for letters and visits of the people's government at the next lower level.

The department for letters and visits of the people's government at or above the county level shall notify such department or unit of the people's government at the next lower level of the matter transferred regularly, and the department or unit for letters and visits of the people's government at a lower level shall report to such department of the people's government at the next higher level about the handling of the transferred matter regularly.

(4) With regard to any important matter among the letter-or-visit matters transferred and feedback on the results of the handling of which is required, send it directly to the administrative organ which has the power to handle it, and ask the organ to feed back the results within the designated time limit for handling it and submit reports on the results of the handling.

Within 15 days from the date the letter-or-visit matter is transferred or assigned thereto according to the provisions of Items (2) to (4) of the preceding paragraph, the administrative organ concerned shall decide whether to accept the matter and notify the letter-writer or visitor of the decision in writing, and inform the department or unit for letters and visits of its decision as required.

Article 22 With regard to a letter-or-visit matter which is directly presented to the administrative organ other than the departments or unit for letters and visits of the people's governments at different levels by a letter-writer or visitor according to the provisions of these Regulations, the administrative organ concerned shall register such matter. A letter-or-visit matter that conforms to the provisions of the first paragraph of Article 14 of these Regulations and falls within the scope of the statutory functions and powers of the said organ shall be accepted by it; and it shall not shift the responsibility onto other organs, take a perfunctory attitude or delay handling the matter. If a letter-or-visit matter does not fall within the scope of the functions and powers of the said organ, it shall notify the letter-writer or visitor that it presents the matter to the organ which has the power to handle the matter.

Where, upon receiving a letter-or-visit matter, the administrative organ concerned can, on the spot, decide whether to accept it, the said organ shall do so in writing. If such decision can not be made on the spot, the said organ shall, within 15 days from the date of receipt of the matter, notify the letter-writer or visitor in writing, unless the name (title) or address of the letter-writer or visitor is unclear.

Relevant administrative organs shall notify each other of the letter-or-visit matters they have accepted.

Article 23 The administrative organ and its staff members shall not divulge or transmit the materials of accusation or exposure or the relevant information provided by a letter-writer or visitor to the individual or department accused or exposed.

Article 24 Where a letter-or-visit matter involves two or more administrative organs, it shall be handled by them through consultation. If disagreement arises in handling of the matter, their common administrative organ at the next higher level shall decide on which organ handles the matter.

Article 25 Where an administrative organ is split up, merges with another or is dissolved, the letter-or-visit matters on which it shall make a decision shall be handled by the administrative organ which continues to perform its functions and powers. If the functions and duties are unclear, the people's government at the corresponding level or the organ designated by such government shall handle the matter.

Article 26 When a citizen, legal person or any other organization discovers an important or urgent letter-or-visit matter or information which may exert an influence on society, it may report the matter to the relevant administrative organ nearby. After receiving such report, the local people's governments at different levels shall immediately report to the people's government at the next higher level and, if necessary, circulate a notice of such matter among the competent departments. After receiving the report, the relevant department of the local people's government at or above the county level shall immediately report to the people's government at the corresponding level and to the competent department at the next higher level and, if necessary, circulate a notice of such matter among the competent departments. After receiving the report, the relevant department of the State Council shall immediately report to the State Council and, if necessary, circulate a notice among the competent departments.

The administrative organ shall not conceal, give a false report about or delay reporting any important or urgent letter-or-visit matter and information or incite others to do so.

Article 27 With regard to important or urgent letter-or-visit matters and information which may exert an influence on society, the administrative organ concerned shall, within the scope of its functions and duties and according to law, take timely measures to prevent the occurrence and extension of adverse influence.

Chapter V Handling, and Supervising and Urging the Handling of Letter-or-visit Matters

Article 28 In handling the letter-or-visit matters presented by a letter-writer or visitor, the administrative organ and its staff members shall perform their duties whole-heartedly, handle the matters impartially, ascertain the facts, clearly distinguish the responsibilities, publicize the legal system, conduct persuasion and handle the matter properly in a timely manner, and they shall not shift the responsibility onto others, take a perfunctory attitude or delay handling the matters.

Article 29 Where the information given by a letter-writer or visitor or the comments or suggestions made thereby are beneficial to improvement of the work of the administrative organ and to promotion of national economic and social development, the relevant administrative organ shall conscientiously study, evaluate and unhesitatingly accept them.

Article 30 The staff member of an administrative organ who has a direct interest in the letter-or-visit matter presented by a letter-writer or visitor or with the letter-writer or visitor shall recuse himself.

Article 31 In handling the letter-or-visit matter presented by a letter-writer or visitor, the administrative organ which has the power to handle such matter shall heed the facts and reasons stated by the letter-writer or visitor. When necessary, it may ask the letter-writer or visitor, or the organization or individual concerned to give an explanation; and where further verification is needed, it may conduct investigation among other organizations or individuals.

A hearing may be held for important, complicated or difficult letter-or-visit matters, and the hearing shall be open to the public to ascertain the facts and clearly distinguish the responsibilities through inquiry, debate, appraisal or judgment by a collegiate group. The people's government of a province, autonomous region, or municipality directly under the Central Government shall respectively prescribe the scope of hearings, presiding officer, participants, procedures and other things.

Article 32 Through investigation and verification, the administrative organ which has the power to handle the letter-or-visit matter presented by a letter-writer or visitor shall make the following decisions according to the relevant laws, regulations, rules and other provisions and give a written reply to the letter-writer or visitor:

(1) to support the request if it is based on clear facts and conforms to laws, regulations, rules and other provisions;

(2) to make an ample explanation to the letter-writer or visitor if the request is reasonable but lacks legal basis; or

(3) not to support the request if it is not based on facts or does not conform to laws, regulations, rules or other provisions.

Where the administrative organ which has the power to handle the matter decides to support the request according to the provisions of Item (1) of the preceding paragraph, it shall urge the relevant organs or units to execute its decision.

Article 33 The matter presented by a letter-writer or visitor shall be handled within 60 days from the date it is accepted. If the matter is complicated, the time limit for handling it may be extended appropriately upon the approval by the responsible person of the administrative organ concerned, but the period extended shall not exceed 30 days, and the letter-writer or visitor shall be notified of the reasons for such extension. Where laws or administrative regulations provide otherwise, the provisions therein shall prevail.

Article 34 Where a letter-writer or visitor is not satisfied with the decision made by an administrative organ on the handling of the letter-or-visit matter, it may, within 30 days from the date of receipt of the written reply, request the administrative organ at the next higher level of the original administrative organ that has handled the matter to reexamine the matter. The administrative organ which has received the request for reexamination shall, within 30 days from the date of receipt of the request, make a decision after reexamination and give a written reply.

Article 35 Where a letter-writer or visitor is not satisfied with the decision made after reexamination, it may, within 30 days from the date of receipt of the written reply, request for review from the administrative organ at the next higher level of the reexamination organ. The administrative organ which has received the request for review shall, within 30 days from the date of receipt of the request, make a decision after review.

The review organ may, according to the second paragraph of Article 31 of these Regulations, hold a hearing, and the review decision made through hearing may be made known to the public according to law. The time needed for hearing shall not be calculated in the time limit prescribed in the preceding paragraph.

Where the letter-writer or visitor is not satisfied with the review decision and continues to lodge a complaint on the basis of the same facts and reasons, the departments or units for letters and visits of the people's governments at all levels and other administrative organs shall no longer accept the compliant.

Article 36 Where the department for letters and visits of the people's government at or above the county level finds that a relevant administrative organ comes under any of the following circumstances, it shall, without delay, urge such organ to handle the matter concerned and suggest that the said organ make improvement,:

(1) without justifiable reasons, failing to handle the letter-or-visit matter within the prescribed time limit;

(2) failing to give feedback on the results of the handling of the letter-or-visit matter as required;

(3) failing to handle the letter-or-visit matter according to the prescribed procedures;

(4) shifting the responsibility for handling the matter onto other departments, taking a perfunctory attitude, or delaying handling the letter-or-visit matter;

(5) failing to execute the decision on the matter; or

(6) needing urging for other reasons.

Upon receiving the suggestions for improvements, the administrative organ shall, within 30 days, give a feedback in writing on the improvements it has made. If the organ refuses to accept the suggestions, it shall explain the reasons.

Article 37 With regard to any policy problem raised by a letter-writer or visitor, the department for letters and visits of the people's government at or above the county level shall report it to the people's government at the corresponding level in a timely manner and make suggestions as to how to improve the policy and solve the problem.

Article 38 With regard to the staff members of an administrative organ who, in the work regarding letters and visits, cause serious consequences by shifting their responsibilities onto others, taking a perfunctory attitude, delaying handling of matters or practicing fraud, the department for letters and visits of the people's government at or above the county level may make suggestions to the administrative organ concerned to give them administrative sanctions.

Article 39 The department for letters and visits of the people's government at or above the county level shall, regularly, submit analytical reports on letters and visits to the people's government at the corresponding level with regard to the following matters:

(1) statistical data on the letter-or-visit matters accepted, the areas covered by the letter-or-visit matters, and the organs against which a relatively larger number of complaints are lodged;

(2) information about the matters which are transferred for handling or the handling of which is urged, and the suggestions about improvement accepted by different departments; and

(3) the policy suggestions made and accepted.

Chapter VI Legal Liability

Article 40 Where one of the following circumstances leads to the presentation of a letter-or-visit matter, which causes serious consequences, the individual directly in charge and the other individuals directly responsible therefor shall be given an administrative sanction according to the provisions of the relevant laws or administrative regulations; if the act constitutes a crime, they shall be investigated for criminal liability according to law:

(1) The lawful rights and interests of a letter-writer or visitor are infringed upon due to overstepping or abuse of power;

(2) An administrative organ infringes upon the lawful rights and interests of a letter-writer or visitor by doing nothing about what it shall do;

(3) The lawful rights and interests of a letter-writer or visitor is infringed upon due to incorrect application of laws or regulations or violation of statutory procedures; or

(4) The execution of the decision in support of the request of a letter-writer or visitor made by the administrative organ which has the power to handle the matter presented is refused.

Article 41 Where the department for letters and visits of the people's government at or above the county level fails to register the letter-or-visit matter, transfer the matter to another organ or assign another organ to handle the matter as required by regulations, or fails to perform the duties of supervising and urging the handling of the matter as it shall have done, the administrative organ at higher levels shall order it to make corrections; if serious consequences are caused, the individual directly in charge and the other individuals directly responsible therefor shall be given an administrative sanction according to law.

Article 42 Where the administrative organ responsible for accepting letter-or-visit matters, in violation of the provisions of these Regulations, comes under any of the following circumstances in accepting a letter-or-visit matter, the administrative organ at a higher level shall order it to make corrections; if serious consequences are caused, the individual directly in charge and the other individuals directly responsible therefor shall be given an administrative sanction according to law:

(1) failing to register the letter-or-visit matter it has received, as is required by regulations;

(2) refusing to accept the letter-or-visit matter which falls within the scope of its statutory functions and powers; or

(3) failing to inform in writing within the specified time limit the letter-writer or visitor of whether the letter-or-visit matter is accepted.

Article 43 Where the administrative organ which has the power to handle letter-or-visit matters, in violation of the provisions of these Regulations, commits any of the following acts in handling a letter-or-visit matter, the administrative organ at a higher level shall order it to make corrections; if serious consequences are caused, the individual directly in charge and the other individuals directly responsible therefor shall be given an administrative sanction according to law:

(1) shifting the responsibility onto another organ, taking a perfunctory attitude, or delaying handling the letter-or-visit matter, or failing to wind up the handling of the letter-or-visit matter within the statutory time limit; or

(2) failing to support the request which is based on clear facts and conforms to relevant laws, regulations, rules and other provisions.

Article 44 Where the staff member of an administrative organ, in violation of the provisions of these Regulations, divulges or transmits the materials of accusation or exposure and relevant information provided by a letter-writer or visitor to the individual or unit accused or exposed, he shall be given an administrative sanction according to law.

Where the staff member of an administrative organ, in handling a letter-or-visit matter , is rude in his style of work, thus intensifying contradictions and causing serious consequences, he shall be given an administrative sanction according to law.

Article 45 Where an administrative organ and its staff members, in violation of the provisions of Article 26 of these Regulations, conceal, make a false report of or delay reporting the important or urgent letter-or-visit matters or informatinn which may exert an influence on society, or incite another individual to do so, thus causing serious consequences, the individual directly in charge and the other individuals directly responsible therefor shall be given an administrative sanction according to law; if the act constitutes a crime, they shall be investigated for criminal liability according to law.

Article 46 Whoever retaliates against a letter-writer or visitor, thus constituting a crime, shall be investigated for criminal liability according to law; if the act is not serious enough to constitute a crime, he shall be given an administrative or disciplinary sanction according to law.

Article 47 Where a letter-writer or visitor violates the provisions of Article 18 or 20 of these Regulations, the staff member of the State organ concerned shall dissuade, criticize or educate him.

If such dissuasion, criticism or education fails, the public security organ shall warn or admonish the letter-writer or visitor or stop its act. If the letter-writer or visitor violates the laws or administrative regulations on assemblies, processions and demonstrations or if its act constitutes a violation of public security administration, the public security organ shall, according to law, take necessary measures to deal with the case on the spot and impose thereupon an administrative penalty for public security. If the act constitutes a crime, it shall be investigated for criminal liability according to law.

Article 48 Where a letter-writer or visitor makes up a story or distorts facts in an attempt to frame or bring a false charge against another individual, which constitutes a crime, he shall be investigated for criminal liability according to law. If the act is not serious enough to constitute a crime, the public security organ shall impose thereupon an administrative penalty for public security according to law.

Chapter VII Supplementary Provisions

Article 49 Social organizations, enterprises and institutions shall handle letters and visits with reference to these Regulations.

Article 50 The letter-or-visit matters presented by foreigners, stateless individuals or foreign organizations shall be handled with reference to these Regulations.

Article 51 These Regulations shall be effective as of May 1, 2005. The Regulations on Letters and Calls promulgated by the State Council on October 28, 1995 shall be repealed simultaneously.


云南省人大常委会


云南省丽江纳西族自治县林业管理条例
云南省人大常委会


（1993年3月19日丽江纳西族自治县第十一届人民代表大会第一次会议通过 1993年4月7日云南省第七届人民代表大会常务委员会第二十九次会议批准）

目 录

第一章 总 则
第二章 植树造林
第三章 资源保护
第四章 采伐和经营管理
第五章 林业资金
第六章 林政管理
第七章 林业科教
第八章 管理职责
第九章 奖励与惩罚
第十章 附 则

第一章 总 则
第一条 为了强化林业管理，有效地保护、培育和合理利用森林资源，加快国土绿化，充分发挥森林的多种效益，促进经济发展，根据《中华人民共和国民族区域自治法》、《中华人民共和国森林法》、《云南省施行森林法及其实施细则的若干规定》和《云南省丽江纳西族自治县自治
条例》等有关法律、法规，结合我县实际，制定本条例。
第二条 林业是自治县的重要产业，应大力开展植树造林，动员全社会办林业。林业建设坚持以营林为基础，普遍护林，大力造林、采育结合，永续利用的林业建设方针。坚持生态效益、经济效益、社会效益并重的原则。
第三条 自治县人民政府林业主管部门，依法管理辖区的林业工作。
第四条 建立健全林业教育、科研和科技推广体系，实行科技兴林，实施科技、生产、计划、财务四位一体的运行机制。
第五条 凡在自治县境内活动的一切组织和个人，都必须遵守本条例。

第二章 植树造林
第六条 各级人民政府在每年全国植树节和我省植树月期间，要广泛开展植树造林宣传教育，认真按规划落实植树造林任务，适时组织和领导植树造林。
县、乡（镇）、村应层层营造样板林，为植树造林作出示范。
第七条 实行国家、集体和个人多层次的开发性植树造林，鼓励和扶持集体、个人发展林业，谁造谁有，长期不变，并可继承、转让。
县、乡、村、场可以引进技术、资金、人才在规划区内营造、经营经济林木和用材林，营造防护林、薪炭林和特用林，自治县提供土地资源和给予优惠条件。
第八条 植树造林按设计技术规程进行，以工程造林为主同时搞好群众造林。建立检查验收制度，成活率低于85％的不得计入年度造林面积。
优先扶持山区和贫困地区的林业和林副、林化、林特产品的商品基地建设。
第九条 未完成年度采伐迹地更新任务的不安排下年度采伐指标，并限期更新。
第十条 农村植树造林实行义务工和积累工制度。义务工用于完成法定植树任务，积累工应参加收益分配。
公民实行义务植树登记卡制度。未履行义务植树的，限期补种或由绿化委员会按规定收取绿化费。
提倡和鼓励种植纪念树，营造纪念林。
第十一条 按照造林规划营造农田防护林。江河两岸、水库周围、公路两侧要分别营造水源涵养林、护堤林、护岸林和护路林。
第十二条 国家和集体所有的宜林荒山荒地以及城乡空隙地，都要在当地政府规定的期限内植树造林。
城乡新建或改造工程的规划设计，必须有绿化设计内容。生产单位在组织生产的同时或生产作业结束后，要恢复植被并搞好造林绿化，维护自然生态环境。
第十三条 植树造林必须遵守造林技术规程，实行科学造林，保栽保活，并有计划、有步骤、按比例地发展经济林木和速生丰产林、用材林、防护林、薪炭林以及水源涵养林，建立林业和林副产品的商品基地。
鼓励集体和个人营造用材林、防护林、薪炭林和种植经济林木，发展乡村、家庭林场和果园。党政机关、学校、企事业单位要搞好庭院绿化，鼓励有条件的单位兴办绿色企业。
县人民政府每年要对植树造林组织一次检查验收，核实造林面积和成活率。

第三章 资源保护
第十四条 对县内森林资源实行以下保护措施：
（一）对森林实行限额采伐全额管理，根据用材林的消耗量低于生长量的原则，严格控制年采伐量，积极鼓励植树造林，实行封山育林。
（二）林区的单位和居民，要进行烧材改革，推行节能节柴措施，努力降低森林资源的低价值消耗，严禁烧好材。
（三）煤炭、冶炼、造纸、交通、农业、水电、城建等部门，应当提取或安排造林绿化专项资金，实行专款专用。
（四）对珍稀动植物实行特殊保护。
第十五条 县、乡人民政府，应当把植树造林、林政管理、护林防火、防治森林病虫害、森工采伐和木材经营、加工纳入自己的议事日程，及时调处林权纠纷，制止乱砍滥伐、毁林开荒和其它破坏森林的行为。
第十六条 县、乡人民政府应当建立健全护林防火组织，层层划定护林防火责任区，建立责任制。各乡（镇）人民政府，林业主管部门，要与县人民政府签订护林防火合同，把护林防火工作与任期目标责任制结合起来。
每年十一月至翌年六月为森林防火期，每年二月至五月为森林火险期，火险期内，林区内禁止一切野外用火。重点林区设立火险了望台，配备必要的交通工具、通讯设施和灭火器械。
乡、村应制定和完善保护森林资源的制度和村规民约，设立专职护林员，重点林区的乡、村在防火期间，应当设立巡山员，集体所有制森林应当有固定的看山员和组建以民兵为骨干的扑火队。
护林防火坚持预防为主、积极扑灭的方针，采取打早、打小、打了的措施。护林防火组织和护林人员在防火期，应加强森林防火巡逻和监测。
发生森林火灾，要立即向上级人民政府报告，并采取有效措施，各级人民政府应当立即组织扑救。交通、邮电、物资、卫生等部门应给予支持配合。
第十七条 玉龙雪山自然保护区、横断山新主林区、老君山九十九龙潭主要林区，要重点保护管理，严禁采伐、狩猎、采挖药材和从事其它有害活动。单位和个人从事科学研究、教学实习、参观考察和开发性活动进入林区，须经自治县人民政府批准，并按规定收取费用（法律另有规定
的除外）。
划定的水源林、风景林只准进行抚育和更新性采伐。
第十八条 对新造林地以及公路两旁、江河两岸、水库周围，水土流失危害严重等地区和需要进行封山育林的地方，要实行封山育林。封山育林分别采取全封、半封和轮封。封山育林区分别由县、乡（镇）人民政府明令公布。
第十九条 中幼林应按规定进行抚育性间伐，抚育间伐应作出设计，按审批权限上报审核批准后，方可进行施工。林业主管部门和乡（镇）应加强技术指导和现场监督检查。
第二十条 禁止毁林开荒以及其它毁林行为。对确需在林地采矿、采石、采沙、采土和其它施工作业的单位和个人，应尽量减少林木损害，按有关法律、法规经批准并缴纳补偿费。
对国家颁布的Ⅰ、Ⅱ级保护植物只能保护发展，不得采伐；Ⅲ级保护植物可实行保护性利用。
列入国家和地方的古树名木，进行特殊保护。
严禁破坏林区护林设施。
第二十一条 对进入、调出县内的森林植物的林产品，包括乔木、灌木、竹类、野生珍贵花卉、干果的种子、苗木和繁殖材料，依法进行检疫，未经检疫的一律不准销售。
第二十二条 国家和地方列为保护的野生动物、植物，严禁猎捕、采挖、买卖、加工和出口。确因科学研究和教学需要猎捕和采集标本的，必须征得自治县人民政府同意，按审批权限报经批准，并收取资源保护费。
第二十三条 严格控制烧柴的消耗，推广改灶节柴，以煤、沼气、太阳能和电能代柴。
有林地区农民采伐烧柴实行限量，具体办法由乡（镇）人民政府制定。
无林地区的农户，应充分利用各种条件营造薪炭林。
禁止乱挖树根。

第四章 采伐和经营管理
第二十四条 各级森工企业必须在自己经营的区域内编制森林经营方案。乡（镇）人民政府应当组织编制集体林经营方案。不编制经营方案的单位和乡（镇），不得采伐和经营木材。
森林采伐实行全额管理，商品材、农民自用材，生产生活用材、培殖业用材、工副业用材和烧柴的专项采伐限额，不得相互挪用。任何单位或个人不得随意变更采伐限额。
中幼林的抚育间伐材不列入木材采伐限额计划。
第二十五条 任何单位或个人采伐林木都必须申办采伐许可证，在年度计划内凭证采伐。
国有林场凭伐区调查设计资料，报自治县林业主管部门批准并核发采伐许可证，凭证采伐，严禁超额采伐。
集体和个人采伐林木，应提交书面申请，由乡、镇人民政府在上级下达的年度计划内安排，林业主管部门审核发证。
经批准采伐的建房用材不得出售。
第二十六条 集体和个人自产自销木材，每立方米由乡（镇）林业工作站按林区价5－8％提取预留更新费，专户储存用于本地区造林护林。对保证质量按期完成更新造林的，如数返还，未完成更新造林任务的，不予返还。
凡批准采伐销售的林木，应按规定缴纳育林基金。
第二十七条 因自然灾害损伤的林木需要采伐的，由林业工作站会同乡（镇）人民政府核定数量，报自治县林业主管部门批准后，按计划进行采伐。
因紧急抢险就地采伐树木时，可由当地行政首长批准，先组织采伐满足急需，事后立即向自治县人民政府备案，由林业主管部门补办手续。
第二十八条 木材经营应严格管理，保护生产经营者的合法权益。
自治县的林业主管部门和工商行政管理部门，应按方便交易、互通有无，有利管理的原则确定木材交易的范围、市场，报县人民政府批准公布。
第二十九条 上市木材必须在指定市场凭证交易。
出县的木材，由林业主管部门审查签证。
经营木材的单位凭木材、林产品经营许可证、营业执照、可异地销售。
经营木材应按有关规定交纳税费。
第三十条 从事木材、林产品经营的国有企业，乡（镇）企业和从事林产品经营的个人，必须先向自治县林业主管部门申请木材、林产品经营许可证，再凭证向县工商行政管理部门申办营业执照，方可经营。
第三十一条 供销部门可以按计划经营木农具材、烧柴及加工农用家具。
乡（镇）木材加工厂，由自治县林业主管部门核定加工指标，按计划加工销售成品、半成品，一般不得经营原木。
要积极扶持兴办乡村集体林场，实行造、采、加工综合经营。
第三十二条 持经营木材营业执照的单位，可凭证进入木材市场销售或者采购有证木材；以木材为原料的加工者可凭营业执照在木材市场采购有证出售的木材。
第三十三条 除自治县林业主管部门所属经营木材的企业，其他单位和个人不得直接进入林区收购木材。对确需要到林区收购的需经林业主管部门批准，按指定地点、时间、数量、材种收购。
第三十四条 国有林业经营单位，应积极兴办林产化工、林产品加工工业。实行林工商综合经营，统一管理以木材为原料的林副产品的生产、加工、销售。并帮助乡、村对采伐剩余物和林化、林特、林副产品的开发利用，提高资源利用率，增加林业收入。
在限额采伐指标内，以国有林业企业为主渠道，扩大集体自主经营，逐步形成多渠道少环节联合经销木材、林化、林特和林副产品。
第三十五条 运输木材必须持有木材运输证。任何单位和个人不得承运无运输证的木材。

第五章 林业资金
第三十六条 县和有条件的乡（镇）建立林业基金制度，实行多渠道分级筹集，分级管理，并接受同级财政的监督，专户存储，专款专用，用于造林护林、林业基础设施建设、森林和野生动植物资源的保护。林业基金包括：
（一）育林基金；
（二）更新改造基金（道路延伸费）；
（三）上级拨款；
（四）按规定对采集、经营野生动植物及其产品的单位和个人征收的费用；
（五）按规定收取的绿化费；
（六）县、乡（镇）财政拨款；
（七）扶贫资金和以粮代赈用于发展林业的资金；
（八）其他收入。
第三十七条 县、乡（镇）财政对林业的投入应列入预算，逐年增加林业的投入。
林业主管部门上交财政的罚没收入主要用于林业。
自治县收取的育林基金全部用于当地发展林业事业。

第六章 林政管理
第三十八条 国有、集体山林及划定的自留山、责任山的林木林地的所有权和使用权，受法律保护。
经核定的国有林、集体林界线一般不得变动。确需变动的，必须经自治县人民政府同意和原批准机关批准。
发生林地、林木权属争议经过协商未能解决的，应由双方的上级人民政府裁决。对裁决不服的可向人民法院起诉，在争议和处理期间，任何一方不得毁坏林地，砍伐林木。
第三十九条 因建设需要占用、征用林地时，应由用地单位按森林法有关规定申报，县林业主管部门签署意见，按审批权限报经批准后，由土地管理部门依法办理手续，并交纳补偿费或营造相应面积的林木。
第四十条 在山林权属不变和自愿互利的基础上，实行统一领导、统一规划、专业管理、联合加工经销、统分结合的双层经营体制，可以采取以户承包经营；分户联片造林，专人管理；山林入股，林工商综合经营；集体和联户办林场；国营林场与集体或农户联营；借山造林；机关、学
校、企事业单位与乡、村联合造林等多形式的经营与合作，收益分成。
第四十一条 承包者在经营自留山、责任山中发生林地、林权纠纷，不得以任何理由破坏森林。经营者无能经营的自留山应收归集体。
承包者不愿履行合同的责任山，可收归集体，另行承包。
第四十二条 木材采伐证、销售证、运输证，木材、林产品经营许可证，木材没收、扣留清单和罚款凭据由自治县林业主管部门统一发放，严格管理，严禁伪造、买卖。
第四十三条 凡出境或通过我县经省人民政府批准设立的木材检查站的木材，必须接受检查。
执勤人员履职时应佩戴林政执法标志。

第七章 林业科教
第四十四条 加强林业教育和科学研究，积极培养林业技术人才，提高林业科学技术水平，努力改善科研条件。加强在职林业干部、职工的培训，不断提高政治素质，业务素质和管理水平。
第四十五条 林业科研、营林、种苗部门应总结和推广林业先进技术，搞好林木良种选育和科学育苗工作，提高造林质量和森林资源的利用。
自治县林业科研部门的主要任务是林业科技的应用和推广。研究适于县境内生长、运用的速生优良品种的引进、栽培和管理技术，为科技兴林服务。
第四十六条 自治县森林病虫防治和检疫机构，应当加强对森林病虫害的预测预报、防治和检疫工作，研究、应用有效的森林病虫害防治技术。
第四十七条 自治县农业科技学校，根据林业发展的需要，必要时应设立林业技术培训班，优先招收山区考生，定向培养山区农村发展林业的技术人才。
农村职业技术教育和农村中学可安排林业技术课。

第八章 管理职责
第四十八条 保护森林，发展林业是各级人民政府的重要职责，应实行各级行政首长责任制，一级对一级负责，严格实行奖惩，认真执行本条例。主要职责是：
（一）宣传执行国家林业法律、法规和政策，不断提高全县人民的林业意识和生态观念；
（二）加强林业工作的宏观管理，制定和组织实施植树造林，资源保护，木材生产，经营管理和林业科技发展规划；
（三）督促检查下级人民政府和林业主管部门依法行政，正确处理林业生产经营活动中国家、集体、个人三者利益关系；

（四）确定和办好林业工作的样板，总结经验，推动全县的林业工作。
第四十九条 林业主管部门的职责是：
（一）宣传贯彻国家林业法律、法规和方针政策；
（二）依法管理林业工作，处理林业行政案件；
（三）按质量完成年度造林计划；
（四）严格执行年度采伐限额，采取措施节约木材；配合节能部门节柴改灶，开发新的农村能源；
（五）禁止毁林开荒和乱砍滥伐；
（六）抓好护林防火，防止重大火灾的发生；
（七）防治森林病虫害；
（八）保护管理珍稀野生动植物；
（九）保护古树名木；
（十）有计划地组织森林资源的综合开发利用；
（十一）筹集、管理林业基金和其它专项经费；
（十二）会同民政、土地等部门调处林权纠纷；
（十三）做好林业宣传、教育和科技工作；
（十四）加强林区建设，改善职工生活；
（十五）做好自治县人民政府和上级林业主管部门交办的其它工作。
第五十条 林业工作站职责：
（一）林业工作站是林业主管部门指导和组织农村集体、个人发展林业生产的基层事业单位，行使行政管理职能；
（二）宣传与贯彻执行《森林法》、林业法规和林业方针、政策，了解与反映群众在发展林业生产中的要求和问题；
（三）配合当地政府制定林业长远规划和年度计划，指导和组织农村集体、个人开展各项林业生产经营活动；
（四）负责造林检查验收、林业统计和森林资源档案管理，掌握本辖区的森林资源消长变化情况；
（五）核定辖区内集体和个人的年度采伐指标，经林业主管部门授权发放木材采伐许可证，检查、监督辖区内的木材采伐，木、竹运输和销售；
（六）配合有关部门调处山林纠纷，查处毁林案件；抓好辖区内的森林防火和病虫害预测预报防治工作；
（七）传播林业科学技术，总结和推广林业生产先进经验，开展林业技术培训、技术咨询和技术服务；
（八）按照国家有关规定代收林业专项基金和其它收费，配合上级主管部门管好用好辖区内各项林业资金。
第五十一条 林政员的职责是：
（一）宣传执行林业法律、法规和政策；
（二）配合行政村、办事处组织植树造林，护林防火和防治森林病虫害；
（三）巡视森林，制止破坏森林行为；
（四）对造成森林资源破坏的行为，有责任向有关部门反映，要求依法处理。
第五十二条 林政管理人员和护林员依法行使职权，受法律保护。

第九章 奖励与惩罚
第五十三条 有下列先进事迹之一的单位或个人，分别由各级人民政府或林业主管部门给予精神鼓励和物质奖励。
（一）模范地执行林业法律、法规和政策，同违反林业法律、法规和政策的行为作斗争，有显著成绩的；
（二）各级领导在任期内实现保护和发展林业，完成各项指标，成绩优异的；
（三）制止乱砍滥伐，防止事故有显著功绩，使国家和人民财产免遭重大损失的；
（四）林业科学研究，发展林业教育，推广林业适用技术，普及林业科学知识，培育良种壮苗，承包荒山造林，成绩显著的；
（五）坚持合理采伐，及时更新，成绩显著的；
（六）超额完成当年植树造林任务，经检查成活率达到90％以上的；
（七）积极进行资源开发，搞好综合利用，节约资源，发展多种经营，成绩显著的；
（八）连续三年未发生森林火灾和毁坏森林案件的乡（镇）、国营林场、自然保护区；连续五年未发生森林火灾和毁坏森林案件的行政村、办事处；
（九）发现和在扑救森林火灾中的有功人员；
（十）保护野生动植物成绩显著的；
（十一）防治森林病虫害工作成绩显著的；
（十二）制止和揭发检举破坏森林的各种违法行为的有功人员；
（十三）在林业工作中有其它成绩需要奖励的。
第五十四条 违反本条例，有下列行为之一的单位和个人，按以下各项处罚。
（一）当年未完成植树造林任务，或森林火灾突出的乡（镇）由县人民政府给予警告；对严重失职的行政负责人员和责任人员，给予行政处分；构成犯罪的依法追究刑事责任。
突破森林采伐限额，或多砍少报，弄虚作假的国营林业局、林场、木材公司及乡（镇），扣除次年的采伐指标，对严重失职的行政负责人和责任人员，给予行政处分和经济处罚。构成犯罪的，依法追究刑事责任。
对所辖区域内乱砍滥伐不加制止或制止不力，不及时报告处理，致使森林遭到严重破坏，视责任情节轻重，对当地行政、林政员给予相应的行政处分。
（二）偷砍盗伐第二十条之规定林木的每伐一株，罚款500～1000元；偷砍盗伐第二十条第二款、第三款规定之林木的，依法追究刑事责任并处罚款和赔偿损失；破坏林区护林设施的，赔偿全部损失并处罚款。
（三）超计划批条子、开口子，致使林木超计划采伐和营私舞弊滥发木材票证的直接责任人员，给予必要的行政处分，造成重大损失的直接责任者，依法追究刑事责任。
（四）林政管理人员违反本条例，应从重处理。执法人员随意放行无木材运输票证的，视情节给予政纪处分；受贿放行，构成犯罪的，依法追究刑事责任。
（五）无采伐证采伐的，按《森林法》及其实施细则的有关规定处罚。
（六）凡是无木材、林产品经营许可证、营业执照经营木材或林产品的单位或个人，由工商行政管理部门按有关规定处理。林农自产的木材无销售证上市的由林业主管部门予以没收。
（七）收购无采伐证或销售证木材的，木材一律没收，并对被没收者处以总价值15～20％内的罚款；因乱收购直接造成盗伐滥伐林木的应予处罚，后果严重，构成犯罪的，依法追究刑事责任。
（八）以抢险救灾和军事需要为借口采伐林木作为他用者，按滥伐林木论处。
（九）以收购非规格材为名收购规格材，处以规格材价值2～3倍的罚款。
（十）不按采伐证核定的项目进行采伐，按《森林采伐更新管理办法》处理。
（十一）伪造、涂改、倒卖木材票证和木材、林产品经营许可证的，视情节处以千元以内的罚款；对已获利的，除没收违法所得外，并处以违法所得的3～5倍的罚款；情节严重，构成犯罪的，依法追究刑事责任。
（十二）因开垦、采石、采沙、采土及工副业毁坏林木，由林业部门责令赔偿全部损失，并补种1～3倍的树木。
（十三）挖树根作燃料或制作工艺品的，挖一棵补种一棵树木，屡教不改的，每挖一棵补种3～5倍的树木。
被责令补种林木而不履行的，由林业主管部门向其征收造林费，并处以造林费2倍以内罚款。
（十四）毁林开荒者由林业部门责令其退耕还林，赔偿林木损失，并处罚款。
（十五）森林防火期违反规定在林区野外用火的，每次罚款10～30元；引起火灾的责任者承担扑火费用，并按森林防火法规处理；情节严重构成犯罪的，依法追究刑事责任。精神病患者和未成年人造成森林火灾的，依法由其监护人承担部份赔偿责任。故意放火的依法追究刑事责任
。
（十六）违反林木种苗检疫、病虫害防治规定者，按《植物检疫条例》、《森林病虫害防治条例》的有关规定处理。
（十七）非法猎取、采挖国家保护的野生动植物的，按《野生动物保护法》及有关规定处理。
（十八）烧砖瓦、烧石灰和从事工副业生产有条件用其它能源代用而继续烧柴的，处以育林基金3～5倍的罚款，并责令其停止生产直至改换能源为止。
（十九）阻碍林政执法人员依法执行公务，行凶殴打、伤害、谩骂、围攻林政执法人员和检举揭发人员的，应依法从重处罚。
（二十）需要处罚的其它行为。
第五十五条 行政处分和行政处罚分别由有关行政主管部门按法定程序进行。所收罚款上交同级财政。
第五十六条 当事人对林业主管部门及其授权单位的行政处罚不服的，可在接到处罚通知之日起，十五日内向上级林业主管部门申请复议。对复议决定不服的，可在接到复议决定之日起十五日内向人民法院提起诉讼。当事人也可以在接到处罚通知之日起，十五日内直接向人民法院起诉
。当事人逾期不申请复议或者不提起诉讼又不履行处罚决定的，林业主管部门及其授权单位可以申请人民法院强制执行。

第十章 附 则
第五十七条 本条例由丽江纳西族自治县人民代表大会常务委员会负责解释。
第五十八条 本条例报云南省人民代表大会常务委员会批准后生效。并报全国人民代表大会常务委员会备案。



1993年4月7日