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Notice from the State Council Work Safety Committee on Earnestly Implementing the Spirit of the 165th Executive Meeting of the State Council to Further Strengthen Work Safety
2019-12-18
People's governments of all provinces, autonomous regions, and municipalities directly under the Central Government, the Xinjiang Production and Construction Corps, all member units of the State Council Safety Production Committee, and relevant central enterprises
Notice from the State Council Safety Committee
Earnestly Implementing the Spirit of the 165th Executive Meeting of the State Council
Notice on Further Strengthening Work on Production Safety
Safety Committee Cable [2011] No. 8
People's Governments of all provinces, autonomous regions, municipalities directly under the Central Government, and the Xinjiang Production and Construction Corps, all member units of the State Council Safety Committee, and relevant central enterprises:
On July 27, Premier Wen Jiabao presided over the 165th executive meeting of the State Council, listened to the report on the "723" Yong-Wen Line particularly serious railway traffic accident, and deployed various measures to further strengthen production safety work in response to the severe situation of frequent accidents. To earnestly implement the spirit of the 165th executive meeting of the State Council, further strengthen production safety work, effectively prevent and resolutely curb major and particularly serious accidents, and promote the continuous and stable improvement of the production safety situation, the following requirements are hereby notified:
1. Deeply understand the spirit of the State Council executive meeting and firmly establish the concept of scientific development and safety development.
Since the beginning of this year, the national production safety situation has generally remained stable, but major and relatively large risk-related accidents have occurred from time to time. Some industries (fields) have frequent accidents, illegal and irregular production, operation, and construction behaviors persistently occur, and the production safety situation remains severe. Especially since July, multiple major and particularly serious accidents have occurred consecutively, causing serious casualties and property losses, with significant social impact. The occurrence of these accidents fully exposed prominent problems such as inadequate implementation of safety responsibilities, insufficient preventive measures, inadequate safety supervision, and ineffective governance and rectification in the production, operation, and construction fields in our country, with extremely profound lessons. The severe production safety situation once again warns us that under any circumstances, production safety work cannot be relaxed in the slightest; it must start from zero, keep the alarm ringing, and be persistently enforced.
We must fully recognize the extreme importance of strengthening production safety work from a global and strategic perspective. Our country is at a development stage where opportunities and contradictions coexist, at a special stage of rapid industrialization and urbanization with frequent production safety accidents. Effectively doing production safety work is an important task to thoroughly implement the scientific outlook on development, accelerate the transformation of the economic development mode, and promote comprehensive, coordinated, and sustainable economic and social development. It is an inevitable requirement to protect the lives and property safety of the people and further promote social harmony and stability. It is an important guarantee to achieve the goal of building a moderately prosperous society in all respects and to accelerate reform, opening up, and modernization. All regions and departments must fully recognize the extreme importance of strengthening production safety work from a global and strategic perspective, must consciously adhere to the principle of "safety first, prevention foremost, and comprehensive governance" with a spirit of high responsibility to the Party and the people, implement the concept that life is above all throughout the entire process of production, operation, and management, and resolutely hold the red line of production safety.
We must firmly establish the scientific concept of safety development. Safety development reflects the essential connotation of the people-oriented scientific outlook on development; it is both an important content and an important guarantee of scientific development. All regions and departments must firmly establish the scientific concept of safety development, insist on the organic unity of speed, quality, efficiency, and safety, and always put safety first. In the process of planning development, construction, and production, production safety must be effectively ensured, adhering to the people-oriented principle, never seeking development at the cost of human life, always emphasizing safety as the premise and guarantee of development, effectively preventing and resolutely curbing major and particularly serious accidents, and promoting the continuous and stable improvement of the production safety situation.
2. Conduct comprehensive inspections and eliminate all types of safety hazards.
According to the requirements of the State Council executive meeting, all regions, departments, and various production and operation units must immediately carry out comprehensive, systematic, and thorough inspections and rectifications of safety hazards.
(1) Focus on key industries (fields) and strengthen safety hazard inspections.
1. Transportation field focusing on railways, highways, and bridges. Adapt to the new requirements of high-speed railway development for transportation safety work, intensify inspections of railway transportation safety hazards, conduct comprehensive inspections of lines, vehicles, equipment, signals, power supply, systems, and management, and continue to carry out special actions to combat illegal and unlawful behaviors endangering railway transportation safety along the four provinces and three cities of the Beijing-Shanghai high-speed railway. Continue to strengthen the "Five Rectifications" and "Three Enhancements" in road traffic, deeply promote special rectifications of safety hazards in passenger vehicles, especially long-distance passenger vehicles, strictly rectify illegal and irregular behaviors such as overloading, over-limit, speeding, and driving under the influence or fatigue. Strictly investigate and punish illegal passenger carrying by agricultural boats, private boats, and fishing boats.
2. Mining field focusing on coal mines. Strengthen the "one ventilation and three preventions" measures focusing on coal mine gas prevention and control, carefully inspect and rectify coal mine gas, water hazards, and fire hazards; continue to promote the rectification, closure, merger, reorganization, and technological transformation of mining enterprises; deeply carry out special rectifications of underground mine ventilation and water prevention, open-pit mine mining areas, high and steep slopes, tailings ponds, and waste dumps; strictly implement the safety approval system for mining construction projects.
3. Industrial field focusing on hazardous chemicals. Thoroughly inspect safety hazards in all aspects of hazardous chemical production, storage, road and inland waterway transportation, pipeline transportation, use, and disposal; continue to strengthen supervision and monitoring of key regulated hazardous processes, hazardous products, and major hazard sources; continue to promote special governance of subcontracting and subletting in fireworks and firecracker production and operation enterprises. The metallurgical industry should continue to focus on special governance of key production processes such as gas, focusing on cross operations, maintenance operations, and confined space operations, deeply inspecting and rectifying hazards.
4. Construction field focusing on housing construction projects. Deeply carry out safety rectification in construction, carefully inspect and rectify safety hazards in facilities and equipment such as cranes, hoists, scaffolding, and bridges; focus on fire prevention in high-rise buildings, "three-in-one" production and operation units, and densely populated places, further deepen fire safety rectification.
Other industries (fields) should also base on actual conditions, determine key points for safety hazard inspections, and effectively implement and do a good job in safety hazard inspection and rectification.
All regions and industry authorities must urge production and operation units to conscientiously, comprehensively, and systematically carry out self-inspection and self-correction, not only checking on-site hazards but also management loopholes and institutional defects: first, check the implementation of responsibilities and systems; second, check the operation and commissioning inspection of new technologies, new designs, new equipment, and new processes; third, check key equipment, places, and links; fourth, check the formulation and drills of emergency plans. The State Council Safety Committee will organize comprehensive inspections or key spot checks in due course.
(2) Increase rectification efforts and establish a long-term mechanism for safety hazard inspection and governance.
Safety hazard inspection and governance must be strict, meticulous, and leave no blind spots, and be regarded as an important part of the enterprise's daily safety management to achieve normalization. For discovered safety hazards, rectification must be completed within a time limit; production suspension and rectification must not be overlooked; banning and closure must be resolutely enforced; relocation must not be delayed; suspension of use must be resolutely implemented; new equipment and new processes must undergo strict inspection and testing before use to ensure safety and reliability. For identified hazards, rectification measures, responsibilities, funds, deadlines, and contingency plans must be fully implemented. Information management of hazard inspections must be implemented, the major hazard classification and listing supervision system must be strictly enforced, and those responsible for accidents caused by poor hazard rectification must be severely held accountable according to law. Strengthen monitoring of major hazard sources, implement supervision responsibilities, and ensure production safety.
3. Fully implement and improve production safety systems.
(1) Further strengthen the implementation of various safety production systems. It is necessary to earnestly implement the safety standard approval system, hazardous operation permit system, on-site leadership system for enterprise leadership teams, hierarchical supervision and announcement system for major safety hazard management, hazard rectification effectiveness evaluation system, accident investigation and supervision system, safety production expense extraction and usage system for high-risk industries, social assistance fund system for road traffic accidents, full-staff safety risk deposit system, work injury insurance system, and safety production liability insurance system. Supervision, enforcement, and incentive mechanisms should be improved to ensure the effective implementation of existing systems.
(2) Further improve various safety production systems based on identified management loopholes and institutional defects. Enterprises of all types should timely formulate or revise relevant industrial technical standards and management systems according to changes in production technology and processes. Regions should base their work on local realities, accelerate the establishment, revision, and abolition of local laws and regulations, strengthen the construction of safety production systems, and provide more comprehensive institutional guarantees for safety production. Relevant departments should adapt to new safety development requirements, accelerate the formulation and revision of laws and administrative regulations such as the "Safety Production Law," further raise access standards, and further implement the main responsibility of enterprises to provide legal protection for safety production.
4. Strictly implement safety production responsibilities.
(1) Fully implement the main responsibility of enterprises for safety production. Enterprises of all types should establish sound safety management organizations, improve safety production rules and regulations, and effectively strengthen meticulous management involving all personnel, all aspects, and the entire process. Safety responsibilities should be implemented at every link, position, and employee to ensure the implementation of safety investment, safety management, technical equipment, education and training, and occupational hazard control measures. The responsibilities of legal representatives and actual controllers as the primary persons responsible for safety production should be strengthened. The on-site leadership system for enterprise leaders should be earnestly implemented to strictly prevent illegal command, illegal operations, and violations of labor discipline. Prominent safety production issues encountered on-site should be promptly resolved to truly achieve "no production without safety." The systems of enterprise safety production commitments, interviews, accident enterprise "blacklists," and accident site analysis meetings should be further strengthened to urge enterprises to fulfill their main safety production responsibilities.
(2) Further strengthen the safety supervision responsibilities and territorial management responsibilities of local governments at all levels and relevant departments. The safety production administrative chief responsibility system of local governments at all levels and the "dual responsibility" system for safety production of leadership team members should be detailed and implemented, focusing on the implementation of safety supervision responsibilities of county and township governments. The professional advantages of industry management departments should be fully utilized to strengthen industry guidance and conscientiously implement departmental supervision responsibilities. Cadres and management personnel should be adequately staffed to ensure that there are responsible, capable, and accountable persons. The comprehensive coordination and supervision and inspection roles of safety committees at all levels and their offices should be fully utilized to further form a joint working force.
(3) Strictly assess and hold accountable safety production responsibilities. The safety production control indicator system should be further improved to make target responsibility assessments more scientific and reasonable. A comprehensive evaluation mechanism for safety production work by safety committees at all levels for their member units and lower-level governments should be established and improved to guide units to focus more on prevention and process. The systems of hierarchical supervision for major accident investigations, tracking supervision and notification of relatively large illegal and unlawful accidents should be earnestly implemented. Adhering to the principles of "four no omissions" and "lawful, factual, and effective," accident investigations and accountability should be conducted scientifically, rigorously, legally, and factually, with accelerated progress. Investigation and handling should be open, transparent, and promptly announced to the public. Acts of concealing, falsifying, delaying, or omitting accident reports and fleeing after accidents should be severely punished according to law.
5. Effectively strengthen safety production and supervision capacity building.
(1) Take the formulation and implementation of the "Twelfth Five-Year Plan" for safety production as an opportunity to vigorously enhance overall safety production guarantee capabilities. Regions, industries, and units should focus on promoting scientific and safe development, incorporate safety production into the overall layout of regional and industry development, and promptly plan and establish six major systems: enterprise safety guarantee, government supervision and social supervision, safety technology support, laws and regulations and policy standards, emergency rescue, and publicity and training. Efforts should be made to improve six capabilities: intrinsic safety level of enterprises, accident prevention, supervision and law enforcement, mass prevention and control, technical equipment safety guarantee, lawful and compliant safety production, accident rescue and emergency response, employee safety quality, and public self-rescue and mutual aid. The "Twelfth Five-Year Plan" for safety production should be formulated and implemented based on actual conditions. Efforts should be intensified to address weak links, improve overall safety production guarantee capabilities, and accelerate the construction of long-term safety production mechanisms.
(2) Promote technological progress and safety compliance to enhance enterprise safety production guarantee capabilities. Accelerate the construction of a safety production technology innovation system with enterprises as the main body, market orientation, and integration of government, industry, academia, research, and application, increasing R&D efforts around safety production technology needs. Accelerate the elimination of outdated technical equipment, vigorously promote new practical technological products, facilitate the updating and transformation of safety facilities and equipment, and improve mechanization, automation, and informatization levels of production. Accelerate the transformation of safety production technology support project achievements to ensure the completion of installation and application of various safety technical equipment as stipulated in Document No. 23 [2010] of the State Council. Increase efforts in enterprise safety production standardization, scientifically regulate the entire production and operation process, consolidate the foundation of enterprise safety production, and further strengthen safety production prevention, management, and monitoring capabilities. Enterprises failing to meet standards within the prescribed time will have their production licenses and safety production permits temporarily revoked by law and be ordered to suspend production for rectification; those failing to meet standards after the deadline will be recommended to local governments for closure according to law.
(3) Focus on improving grassroots safety supervision and inspection capabilities. Regions should formulate and implement a "Twelfth Five-Year Plan" for safety supervision and inspection capacity building, comprehensively strengthening safety production supervision and law enforcement, information support, practical training and assessment, and emergency command system construction according to issued standards. Combined with township institutional reforms, using the promotion of establishing safety supervision stations (offices) in townships and streets and implementing entrusted law enforcement as breakthroughs, continue to support and encourage local exploration and innovation in township safety supervision system construction, forming a grassroots safety supervision system centered on townships (streets).
(4) Focus on improving emergency rescue guarantee capabilities. Accelerate the construction of 7 national mine emergency rescue teams and 14 regional mine emergency rescue teams, leading the way to vigorously promote the construction of various professional emergency rescue teams, strengthen technical equipment construction, and improve rescue capabilities. Regions, departments, and industries should rely on large enterprises and professional rescue forces to strengthen the construction of regional emergency rescue capabilities serving surrounding areas. Accelerate the construction of the national safety production emergency platform system, effectively improve accident rescue practical capabilities, and minimize loss of life and property caused by accidents as much as possible.
6. Strengthen administrative law enforcement and social supervision according to law.
(1) Focus on continuously and severely cracking down on illegal and unlawful behaviors to further strengthen administrative law enforcement. Regions and relevant departments should insist on treating the crackdown on illegal and unlawful production, operation, and construction activities (hereinafter referred to as "crackdown on illegal activities") as an effective means to prevent and curb accidents, maintain a high-pressure stance continuously, and consolidate and expand work achievements. For illegal and unlawful production, operation, and construction activities, law enforcement and supervision responsibilities, especially at county and township levels, should be implemented layer by layer, social supervision strengthened, tracking supervision enhanced, and every case discovered should be dealt with, with increased punishment according to law and regulations to prevent resurgence. To improve law enforcement efficiency and effectiveness, a joint law enforcement work system among departments should be established and improved, clearly defining responsibilities, law enforcement procedures, standards, and supervision and inspection methods, coordinating and connecting all departments and links to promote the improvement of safety supervision capabilities and levels. Institutional construction should be strengthened by elevating effective measures, effective methods, and work requirements from the special crackdown on illegal activities into institutional norms, incorporating the crackdown work into institutionalization, normalization, and regularization, promoting solid, lasting, and effective implementation of the special crackdown.
(2) Further improve the safety supervision and inspection system. It is necessary to further clarify, streamline, and improve the safety supervision responsibility system of member units at all levels of the Safety Committee. Local safety supervision agencies at all levels, especially grassroots ones, should be standardized and staffed with safety supervision personnel according to different regions, economic scale, and population size; focus on safety production inspection and law enforcement, and establish provincial, municipal, and county-level safety production law enforcement teams; accelerate the establishment of a regulatory system combining safety production and occupational health, effectively strengthen occupational health and safety supervision, ensure that safety production work is "managed by someone and accountable to someone," and provide necessary organizational system guarantees for strengthening administrative supervision of safety production according to law.
(3) Vigorously promote innovation in safety supervision and inspection work. It is necessary to carefully analyze and grasp new situations and problems in the field of safety production, summarize and promote systems explored and created by some regions such as the "hidden danger self-inspection and self-reporting" system, "grid-based" territorial supervision, establishment of "safety production on-site law enforcement audit forms," and safety supervision and inspection models characterized by detailed division of labor, standardized procedures, and closed-loop supervision, to promote comprehensive and effective implementation of safety supervision and inspection responsibilities and ensure law enforcement is in place. Explore the establishment of safety and reliability testing and inspection systems for new technologies, new designs, new equipment, and new processes to ensure safety production.
(4) Focus on improving social supervision and mass prevention and control levels in safety production work. Fully leverage the roles of trade unions, the Communist Youth League, the Women's Federation, and other mass organizations to lawfully safeguard and implement employees' rights to participate in and supervise safety production, and emphasize the full play of employees' supervision throughout the entire process and all aspects of safety production. Further enhance the role of news media in public opinion supervision, actively carry out safety production news releases, proactively respond to social concerns, promptly release accurate and truthful information to society, consciously accept social supervision, and correctly guide public opinion. Vigorously promote the disclosure of safety production information, establish and improve reward systems for reporting production safety accidents, major hidden dangers, and illegal and unlawful behaviors. Departments and units must promptly investigate and seriously handle safety production hazards, illegal and unlawful production, operation, and construction behaviors, accident concealment and false reporting, and administrative inaction reported by media and the public.
7. Vigorously strengthen safety production publicity, education, and training.
(1) Increase efforts in safety production publicity. Safety production knowledge should be promoted more widely and deeply to enhance the whole society's safety production awareness. Leading cadres especially should comprehensively learn and master safety production knowledge, enhance safety production awareness, and strictly act according to laws and regulations. Efforts should be made to build a people-oriented safety culture that focuses on safety and cares for life, promoting the main theme of safe development. Vigorously carry out activities to bring safety production, emergency avoidance, and occupational health knowledge into enterprises, schools, villages, and families to enhance the whole society's safety production awareness. Actively promote the creation of safety culture demonstration enterprises, safe development cities, and safe communities; pay attention to the guiding role of media; timely summarize and promote various typical experiences and effective practices emerging in safety production work; focus on typical role models and demonstration leadership; and further create a social public opinion environment that strengthens safety production.
(2) Strengthen safety production education and training. While strengthening safety production education and training for leaders and law enforcement personnel at all levels of government and departments responsible for safety supervision, further implement the requirement that enterprise principals, safety production management personnel, and special workers must hold certificates according to relevant regulations; vigorously carry out vocational education and training, all-staff training, professional skills training, pre-job training, and pre-shift training. Employees must be fully qualified through training before starting work; crash courses are not allowed. Enterprises with employees working without training or certification shall be ordered to suspend production for rectification according to law, and those with serious circumstances shall be closed according to law. Accelerate the cultivation of professional talents in high-risk industries and urgently needed skilled talents on the production front line; further implement policies such as school-enterprise cooperation, targeted single recruitment, and order-based training; and strive to cultivate high-quality safety professionals.
8. Further strengthen leadership over safety production work.
All regions, departments, and units must earnestly strengthen leadership over safety production work, treat safety production as a top priority, place it on the important agenda, and further strengthen comprehensive preventive measures. According to the requirements of scientific development and safe development, coordinate the relationship between safety and speed, quality, and efficiency; establish a responsibility system and working mechanism for synchronizing planning, deployment, promotion, assessment, and rewards and punishments of safety production with economic and social development. Adhere to a people-oriented approach, keep the alarm bell ringing, start from zero, maintain constant efforts, improve the incentive and restraint mechanism for safety production work, adopt various means including economic, legal, administrative, and educational methods, rely closely on the broad masses of the people, mobilize the strength of the whole society, and better safeguard the safety of people's lives and property. Pay attention to organically combining post-accident accountability with pre-accident prevention, and combining solving prominent problems restricting safety production with building a long-term mechanism for safety production; coordinate overall planning, highlight key points, work diligently and pragmatically, resolutely win the tough battle of safety production, further reduce the total number of accidents, effectively prevent and resolutely curb the occurrence of major and particularly serious accidents, and create a good safety production environment for economic development and social harmony and stability.
All regions, relevant departments, and units must attach great importance to and conscientiously implement the spirit of the 165th Executive Meeting of the State Council, promptly convey the relevant spirit and requirements to local governments at all levels, departments, and all production and business units, and make comprehensive arrangements and deployments closely related to the actual conditions of their regions and departments. Leadership must be strengthened, organization carefully planned, arrangements meticulously made, and implementation conscientiously carried out to achieve practical results. Provincial-level Safety Committees and all member units of the State Council Safety Committee are requested to report the implementation status of the spirit of the 165th Executive Meeting of the State Council and the plenary meeting of the State Council Safety Committee to the Office of the State Council Safety Committee by August 31.
State Council Safety Production Committee
July 31, 2011
