Guiding opinions on accelerating the construction of socialized service system for production safety

安全生产社会化服务机构是社会主义市场经济条件下参与和推进安全生产工作的重要力量,对在新形势下提高我国安全生产整体水平发挥了积极作用。但当前安全生产社会化服务工作仍存在力量不足、能力不强、行为不规范、机制不完善、管理不严格等突出问题,有的社会化服务机构弄虚作假、租借资质、违法挂靠、违规收费等,破坏了正常的安全生产秩序,依法受到了严厉追究。为进一步加强安全生产社会化服务工作,规范相关机构服务行为,根据《中共中央国务院关于推进安全生产领域改革发展的意见》要求,经国务院领导同志同意,现就加快推进安全生产社会化服务体系建设提出以下意见:

一、总体要求

认真贯彻落实中央关于推进安全生产领域改革发展的工作部署,坚持政策引导、部门推动、市场运作的原则,以安全生产服务需求为导向,以服务企业安全生产、服务政府安全监管监察、服务公众安全教育为主责,以自觉遵守法律法规和加强监督管理为重点,以提升安全生产社会治理能力为目标,坚持专项服务与综合服务相结合,搭建服务平台,壮大服务市场,规范服务行为,更好地为安全生产和职业健康提供技术服务、责任保险、专业人才、安全培训、科技支撑、行业组织等社会化服务,加快建立主体多元、覆盖全面、综合配套、机制灵活、运转高效的新型安全生产社会化服务体系,不断提高安全生产和职业健康工作服务水平,为推进安全生产形势持续稳定好转作出积极贡献。

二、有效提高安全评价、检测检验和职业健康技术服务能力
(一)规范准入管理。
加快安全生产和职业健康技术服务机构资质管理制度改革,完善技术服务机构资质管理办法,提高设立标准条件,规范从业人员资格管理,严格市场准入。破除地方保护和行业垄断,严禁设立备案、保证金等限制进入门槛。服务机构跨区域开展业务的,要按项目审批管理权限,告知服务对象所在地的安全生产监管监察部门。

(二)支持发展壮大服务力量。
鼓励具有综合专业服务能力、业绩突出、信誉良好的技术服务机构组建行业领域龙头企业,建立多功能综合性服务主体,加快培育一批有影响力的技术服务品牌机构。推动安全生产和职业健康工作融合,实行安全生产和职业健康规划设计、检测检验、咨询论证、评价评估、核查核验等一体化技术服务。

(三)规范服务行为。
完善技术服务标准,建立技术服务机构全过程服务质量管理体系。实施服务信息公开制度,公开服务的人员、程序和主要内容等,公开发布年度业绩报告。技术服务收费严格执行国家有关规定,通过合同协商确定。技术服务机构对其出具的报告依法承担法律责任。

三、加快建立保险机构参与事故防控机制
(一)大力推行安全生产责任保险。
建立健全安全生产责任保险制度,完善相关法律、法规和规章,在矿山、危险化学品、烟花爆竹、交通运输、建筑施工、民用爆炸物品、金属冶炼、渔业生产等高危行业领域强制实施安全生产责任保险。推动保险机构开发适应各类企业安全生产需求的个性化保险产品,推动安全生产责任保险与其他交叉险种优化组合。

(二)强化事故预防控制。
制定安全生产责任保险费用列支、管理和安全预防费使用的相关规定,严格监督检查,确保专款专用。制定合同范本,把生产安全事故预防工作纳入保险合同内容,明确保险机构开展安全风险管控规范要求。建立保险机构和技术服务机构事故预防合作机制,提高风险辨识管控和隐患排查治理水平。鼓励保险机构开展事故预防相关技术的研发推广应用。

(三)建立激励推动机制。
将实施安全生产责任保险制度情况纳入安全生产工作考核内容,不断加大推行力度。充分运用安全生产责任保险差别费率和浮动费率的杠杆作用,推动企业加强安全管理,不断提高从业人员安全技能,改善现场作业环境。

四、充分发挥注册安全工程师及事务所作用
(一)加快健全注册安全工程师管理制度。
按照国家职业资格管理要求,制修订注册安全工程师分类管理办法、分级考试评定办法和考试大纲,规范注册管理、考试评定和登记服务等工作,努力构建以用为本、科学准入、持续教育、市场化发展的注册安全工程师工作格局。

(二)完善注册安全工程师继续教育机制。

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制定注册安全工程师继续教育办法。建设网络教育平台,建立课程“超市”和电子图书馆,推行自主选学。探索实行继续教育学分制,完善考核工作,建立贯穿注册安全工程师职业生涯、多层次多途径继续教育机制。

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(三)做好使用注册安全工程师工作。
危险物品的生产、储存单位以及矿山、金属冶炼单位和技术服务机构要按照要求配备注册安全工程师,安全生产管理机构负责人一般应具有注册安全工程师职业资格。鼓励其他行业企业配备注册安全工程师。培育典型、示范推动,努力形成全社会重视、关心、使用注册安全工程师的良好氛围。

(四)加强注册安全工程师事务所建设。
制定注册安全工程师事务所发展指导意见,支持注册安全工程师事务所开展安全生产社会化服务工作。鼓励生产经营单位向注册安全工程师事务所购买技术服务,或开展安全生产委托管理服务。支持成立注册安全工程师社会团体,搭建注册安全工程师服务、交流、自律、维权平台。

五、切实增强安全生产培训工作成效
(一)加快安全生产网络培训建设。
加强安全生产网络平台建设和资源整合,形成兼容、开放、共享、规范的安全生产网络培训机制。拓展新媒体安全培训形式,构建共建共享、互联互通的泛在学习安全培训云平台。实施全国安全生产网络学院建设工程。加强安全培训数据平台建设,实行考试、发证、网上审核、档案管理网上生成、考试远程视频监控、培训和证书信息全国联网查询。

(二)建立供给式培训服务机制。
加强实操实训和仿真式、模拟式、体感式等安全培训。支持高等院校、职业学校利用优势资源开展安全生产培训。支持培训机构参与培训大纲制修订、师资建设、课程建设、教材编写等安全生产培训基础工作。推动安全培训机构为中小微企业开展帮扶培训。分行业和工种,遴选优秀教师队伍,建立国家和省级师资库。实施安全生产培训名师名课工程,支持形成一批具有品牌效应的培训机构。

(三)完善安全培训考试机制。
按照教考分离、统一标准的要求,深入推进考试机构建设,加快建立布局合理、设施完善、专业齐全的考试体系。协调推进安全生产基础知识考点、特种作业实际操作考点建设。完善考试大纲、考核标准和考试题库建设,建立定期修订机制,实现国家题库与省级题库相结合。建立更加严格的考试管理制度,提升考务队伍业务能力。

(四)深入开展安全知识普及活动。
支持培训机构面向企业和社会公众开发安全生产和职业健康宣传教育产品。支持培训机构与社会组织、保险机构、科研院所等相互合作、优势互补,拓宽宣传渠道,广泛普及安全知识。鼓励引导基层群众性组织、新闻媒体、志愿者等开展群众喜闻乐见的安全生产和职业健康知识宣传活动,努力提高全民安全健康意识和风险防范能力。支持具备条件的专业机构参与安全发展城市和企业安全文化建设等相关工作。

六、着力提高安全科技服务水平
(一)创新科技服务模式。
坚持以科技创新驱动安全生产,把防控风险和遏制事故作为安全生产科技服务的主方向。建立高校、科研院所广泛参与的主动预防型安全生产和职业病危害防治科研机制,加快形成需求牵引、市场与应用为导向、产学研用紧密结合的协同创新体系。支持安全生产领域相关研究基地(平台)和信息化支撑保障基础设施建设,加快安全生产关键技术装备攻关。

(二)加快成果推广应用。
深入推广安全生产和职业健康先进技术装备,引导相关技术服务机构大力推广防治事故灾害和职业病危害先进技术装备,加快建设一批先进适用的技术示范工程。建立安全生产信息化第三方支撑运行机制,引导有实力的技术服务机构参与安全生产监管信息化工程建设,推进功能区安全生产信息化示范建设,实现信息技术与安全生产的深度融合。实施从研发到应用的全链条评估,加快推动科技成果向现实生产力转化,提高科技对安全生产的贡献率。

(三)完善科技服务政策。
健全人才引进、培养制度,建立安全生产科技人才智库。健全专业技术人员绩效挂钩的创新激励措施,实行以增加知识价值为导向的分配政策,完善科技创新奖励和应用推广奖励制度。支持科研机构联合上下游企业、科技园区等,打造区域性安全生产技术创新和成果转化联盟。充分利用国家安全生产专用设备企业所得税优惠、研发费用加计扣除、高新技术企业所得税优惠等有关支持政策,大力提升企业安全生产科学技术水平。

七、不断强化行业社会组织服务功能
(一)拓宽社会组织承接服务范围。
充分发挥依法设立的社会组织提供服务、反映诉求、规范行为、促进和谐的作用。通过转移、委托、授权或政府购买服务等方式,将适宜社会组织承担的有关安全生产和职业健康法规标准起草、绩效评估、应急救援等公共服务事项,依据有关规定程序交给社会组织承担。

(二)提升社会组织业务支撑能力。
将社会组织人才培养纳入相关行业领域人才工作规划,大力培养适应市场化需求的高技能复合型人才。相关社会组织要健全法人治理结构,完善运行机制,加强质量管理,不断提高服务水平。加强与政府有关部门信息互通、工作互动的沟通联络,提高服务的针对性和实效性。

(三)加强社会组织行业自律。
社会组织要建立健全内部管理制度,加强对成员单位的管理,推动履行安全生产法定责任。按规定公开承接服务相关信息,自觉接受社会监督。社会组织承接的服务项目,不得以行政机关名义或变相以行政手段开展工作,严禁充当“二政府”“红顶中介”。严禁巧立名目乱收费,切实防止只收费不管理的现象。

八、严格对社会化服务机构的监督管理
(一)严格资质管理。
对依法应当设立资质的社会化服务机构,要严格审批条件和程序,并向社会公开。严厉打击出具虚假报告、租赁资质证书、违法挂靠等,严禁垄断收费、违规收费、指定收费。建立退出机制,对存在问题的服务机构视情节,采取责令整改、通报批评、中止服务等措施,违反有关法律法规的,依法吊销其资格证书。


(二)严格执法检查。
明确和落实有关部门对社会化服务机构的监管职责,畅通举报投诉渠道,依法加强监督管理。将监督检查社会化服务机构的服务行为和结果,纳入执法计划,开展随机抽查和专项检查,实现监督检查的常态化、制度化。加强生产安全事故调查中社会化服务机构的责任追查,对事故负有责任的机构和人员依法实施行业禁入和职业禁入,对发现存在违法行为的依法追究法律责任。

(三)严格信用管理。
将安全生产社会化服务机构信用纳入安全生产诚信体系,将信用情况作为资质认定、日常监管、政策扶持、融资授信等工作的重要依据,纳入企业信用信息公示系统和个人安全生产职业记录。严格实施安全生产不良信用记录制度,对发现未履行服务合同项目、只收费不服务等失信行为的技术服务机构、保险机构、培训机构、社会组织、注册安全工程师事务所等,列入“黑名单”管理,强化守信激励、失信惩戒。

九、进一步加强政策引导和组织推动
(一)完善政府购买服务制度。
制定安全监管监察部门购买服务的指导性目录,规范政府购买安全生产服务行为。完善由购买主体、服务对象和第三方专业机构共同参与的综合评价体系,并将评价结果作为选择承接主体的重要依据。保障政府购买服务经费,规范支付管理。

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(二)有序扩大服务市场需求。
建立统一的安全生产社会化服务信息平台,加速信息交流、要素集聚、市场融通,实现服务需求和供给资源的共享对接。鼓励各地区制定中小企业的安全技术服务资助行动计划,对安全生产风险突出、自身能力不足的小微企业给予适当帮扶。除应当依法设置安全生产管理机构或者配备专职安全生产管理人员的,其他长期聘用技术服务机构或专家获得安全生产服务的企业,可视同其配备了相应的兼职安全生产管理人员。

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(三)完善推动机制。
各地区、各部门要将推进安全生产社会化服务工作作为改进和加强安全生产的重要举措,纳入年度安全生产目标责任制考核和巡查工作内容。有关部门要加强协调配合,及时研究解决重点难点问题,结合事业单位分类改革,完善推进安全生产社会化服务的政策措施,形成推进安全生产社会化服务体系建设合力。

国务院安全生产委员会
2016年12月31日
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The socialization of production safety service is an important force to participate in and promote the work of production safety under the condition of socialist market economy. But the social service work of the current production safety is still lack of strength, ability, behavior, mechanism is not perfect, the management is not strict and other outstanding issues, some of the social service institutions, loan qualification, practise fraud illegal anchored, illegal charges, destroyed the normal order of production safety, in accordance with the law by strict accountability. In order to further strengthen the safety of public service agencies, standardized service behavior, according to the CPC Central Committee and State Council on promoting the reform and development of the field of safety production requirements, approved by the State Council leaders, is to accelerate the production safety of the social service system construction put forward the following opinions:
First, the overall requirements
Conscientiously implement the Central Committee on promoting the reform and development of the field of production safety work deployment, adhere to the policy guidance, and departments to promote the operation of the market principle, the demand of safe production service oriented to service enterprise production safety, service government supervision, public security service education as the main responsibility, to abide by the laws and regulations and strengthen supervision and management as the key to enhance the safety of social governance ability as the goal, adhere to the special services and integrated services combined, build a service platform, expand service market, service behavior, to provide better technical services, for the safe production and occupation liability insurance, health professionals, safety training, technical support, industry organizations and other social services accelerate the establishment of a new, multi subjects, comprehensive coverage, comprehensive, flexible and efficient operation. Safety production socialization service system, and constantly improve the level of work safety and occupational health services, in order to promote sustained and stable production safety situation to make a positive contribution to improve.
公司应该建立覆盖信息系统全生命周期的信息安全问题管理流程。
Two, effectively improve the safety evaluation, testing and inspection and professional health technical service capabilities
(a) standardize access management.
Accelerate the reform of production safety and occupation health technical service agencies qualification management system, improve the measures for the administration of qualifications of technical services, improve the establishment of standard conditions, standardize the qualification management, strict market access. Get rid of local protection and industry monopoly, is strictly prohibited to set up record, margin and other restrictions into the threshold. Service agencies to carry out business across the region, according to the project approval authority, to inform the location of the object of production safety supervision and supervision departments.
(two) support the development and expansion of service forces.
Encourage with technical service institutions comprehensive professional services capabilities, outstanding performance, good reputation of the formation of industry leading enterprises, the establishment of integrated multi service main body, accelerate the development of a number of influential technology service brand. To promote safe production and occupation health work integration, implement production safety and occupation health planning, inspection, consultation, evaluation, verification and verification of integrated technology services.
(three) regulating service behavior.
Improve the technical service standards, the establishment of technical service agencies throughout the process of service quality management system. The implementation of the service information disclosure system, public service personnel, procedures and the main content, etc., the annual report released. Technical service charges strictly enforce the relevant provisions of the state, through the contract negotiation. Technical service institutions shall bear legal liabilities according to law.
Three, accelerate the establishment of insurance institutions to participate in accident prevention and control mechanisms
(a) vigorously promote the production safety liability insurance.
Establish and improve the safe production liability insurance system, perfecting the relevant laws and regulations, compulsory liability insurance of safe production in mines, dangerous chemicals, fireworks, transportation, construction, civil explosives, metal smelting, fishery production and other high-risk areas of industry. To promote the development of insurance companies to adapt to the needs of various types of enterprise safety production of personalized insurance products, and promote the production safety liability insurance and other cross optimal combination of insurance.
(two) strengthening accident prevention and control.
The development of the relevant provisions of the management and safety prevention fee to use the safe production liability insurance expenses, and strict supervision and inspection, to ensure earmarking. Contract model, the production safety accident prevention work into the insurance contract content, clear insurance institutions to carry out safety risk management and regulatory requirements. Establish cooperation mechanisms for the prevention of accidents and insurance institutions and technical services, improve risk identification and management of the level of risk management. Encourage insurance institutions to carry out accident prevention related technology development and application.
(three) establish an incentive mechanism.
The implementation of safe production liability insurance system into the work safety assessment content, and constantly increase the intensity of implementation. Make full use of the safety production liability insurance differential rate and floating rate leverage, promote the enterprise to strengthen safety management, and constantly improve the safety skills, improve the working environment.
Four, give full play to the role of registered safety engineers and firms
(1) to improve the management system of registered safety engineers.
In accordance with the requirements of the national occupation qualification management approach, and the revision of the certified safety engineer examination and evaluation methods of classification management and examination syllabus, standardized registration management, examination evaluation and registration service work, and strive to build for science and education for sustainable development, market access, the certified safety engineer work pattern.
(two) improve the continuing education mechanism of registered safety engineer.
Develop methods for continuing education of registered safety engineers. The construction of network education platform, the establishment of curriculum supermarket and the electronic library, the implementation of autonomous learning. Explore the implementation of continuing education credit system, improve the assessment work, set up through the registered safety engineer career, multi-level and multi way continuing education mechanism.
(three) use of registered safety engineer.
Dangerous goods production, storage units as well as mining, metal smelting unit and technical service institutions should be in accordance with the requirements of Certified Safety Engineers, safety management agency responsible person should have registered safety engineer occupation qualification. Encourage other industries to be equipped with registered safety engineer. Foster a typical model to promote the formation of the whole society to pay attention to, care about, the use of Registered Safety Engineer good atmosphere.
(four) strengthening the construction of Registered Safety Engineer firm.
Develop the registered safety engineer firm development guidance, support the registered safety engineer to carry out the work of social security work. Encourage production and business units to purchase technical services to the registered safety engineer firm, or to carry out safety production management services. Support the establishment of Registered Safety Engineer social groups, the establishment of registered safety engineer services, communication, self-discipline, rights platform.
Five, effectively enhance the effectiveness of work safety training
(1) to speed up the construction of safety production network training.
Strengthen the construction of safety production network platform and resource integration, the formation of compatible, open, sharing, standardized production safety network training mechanism. Expand the form of new media security training, build sharing, interoperability of ubiquitous learning security training cloud platform. Implementation of the National Institute of safety production network construction project. Strengthen the construction of safety training data platform, the implementation of the examination, certification, online audit, file management online generation, remote video surveillance test, training and certification of national information network query.
(two) to establish a supply training service mechanism.
To strengthen the practical training and simulation, simulation, body sense of safety training etc.. Support colleges and vocational schools to make use of advantageous resources to carry out safety production training. Support the training institutions to participate in the basic work of production safety training, teachers’ construction, course construction, teaching material compilation and so on. Promote security training institutions to carry out small and micro enterprises to help training. The selection of excellent teachers and the establishment of national and provincial teachers. The implementation of safe production training courses, to support the formation of a number of brand effect training institutions.
(three) improve the safety training examination mechanism.
In accordance with the separation of teaching and examination, unified standards, and further promote the construction of examination institutions, accelerate the establishment of a rational layout, facilities, professional and complete examination system. To promote the coordination of production safety special operations basic knowledge test, actual operation center construction. We should improve the examination outline, the examination standard and the examination question bank construction, establish the regular revision mechanism, and realize the combination of the national question bank and the provincial question bank. Establish more strict examination management system, enhance the ability of professional examination.
(four) to carry out safety knowledge popularization activities.

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