Notice of the Ministry of Finance on Enforcement of the Detailed Rules of Implementation of the Regulations on the Administration Lotteries

财政部关于贯彻落实《彩票管理条例实施细则》的通知

Promulgating Institution: Ministry of Finance

Document Number: Cai Zong [2012] No.6

Promulgating Date: 02/01/2012

Effective Date: 02/01/2012

颁布机关: 财政部

文      号: 财综[2012]6号

颁布时间: 02/01/2012

实施时间: 02/01/2012

To finance departments (bureaus) of all provinces, autonomous regions and municipalities directly under the Central Government, China Welfare Lottery Distribution Administration Center and the Sports Lottery Administration Center of the General Administration of Sport of China,

The Detailed Rules of Implementation of the Regulations on the Administration of Lotteries (Order No. 67 of the Ministry of Finance, the Ministry of Civil Affairs and the General Administration of Sport of China, hereinafter referred to as the “Rules”), which was promulgated on January 18, 2012 and shall take effect on March 1, 2012, marks another milestone in the development of China’s lottery industry after the promulgation and effectiveness of the Regulations on the Administration of Lotteries (Order No. 554 of the State Council, hereinafter referred to as the “Regulations”). With a view to effectively enforcing the Rules and promoting the stable, sustainable and healthy development of China’s lottery industry, relevant matters are hereby notified as follows:

    各省、自治区、直辖市财政厅(局),中国福利彩票发行管理中心、国家体育总局体育彩票管理中心:

    《彩票管理条例实施细则》(财政部民政部国家体育总局令第67号,以下简称《实施细则》)已于2012年1月18日公布,自2012年3月1日起施行。这是继《彩票管理条例》(国务院令第554号,以下简称《条例》)公布施行后我国彩票发展进程中的又一件大事。为贯彻落实好《实施细则》,促进我国彩票持续稳定健康发展,现就有关事项通知如下:

1. The significance of enforcing the Rules shall be fully appreciated.

The Rules are inter-departmental rules consisting of a total of 64 articles in six chapters that are jointly formulated by the Ministry of Finance, the Ministry of Civil Affairs and the General Administration of Sport of China with approval of the State Council. In accordance with the Regulations, the Rules are based on a full summary of the successful practices of China’s lottery development and administration, as well as a reasonable absorption of the mature experiences in international lottery administration, further refining the contents of the Regulations, and specifying the stipulations on lottery supervision and administration duties, lottery distribution and sale, lottery drawing and claim, lottery fund management, etc. The formulation and implementation of the Rules are of great significance for further strengthening lottery supervision and administration, regulating the operations of the lottery market, protecting the legitimate rights and interests of lottery participants, maintaining the order of the lottery market, support the coordinated development of public welfare undertakings and enhancing the credibility of national lottery, and serve as an important institutional safeguard for China’s lottery development and administration.

Finance departments at all levels and lottery distribution and sale agencies shall fully appreciate the importance of the Rules, effectively enhance the sense of mission and sense of responsibility for the enforcement thereof, lose no time in enforcing the Rules, accurately grasp the legislative essence and fundamental contents thereof, set up proper supporting systems, and make more efforts in publicity and training, so as to ensure the complete and comprehensive implementation of the Rules.

       一、充分认识贯彻落实《实施细则》的重要意义

    《实施细则》是经国务院批准,由财政部、民政部、国家体育总局共同制定的部门联合规章,共六章64条。《实施细则》依据《条例》的规定,充分吸收我国彩票发展和管理的成功做法,合理借鉴国际彩票管理的成熟经验,进一步细化了《条例》内容,对彩票监督管理职责、彩票发行销售、彩票开奖兑奖、彩票资金管理等作出了明确规定。制定并施行《实施细则》,对进一步加强彩票监督管理、规范彩票市场运行、保障彩票参与者合法权益、维护彩票市场秩序、支持社会公益事业协调发展和提升国家彩票公信力具有非常重要的意义,是我国彩票发展和管理的重要制度保障。

    各级财政部门和彩票发行机构、彩票销售机构,要充分认识贯彻落实《实施细则》的重要意义,切实增强贯彻落实《实施细则》的使命感和责任感,抓紧抓好《实施细则》的贯彻落实工作,准确把握《实施细则》的精神实质及基本内容,搞好配套制度建设,加大宣传和培训力度,确保《实施细则》完整全面贯彻落实。

2. Efforts shall be made to set up and improve relevant supporting administrative systems and rules as soon as possible.

(1) It is necessary to lose no time in further improving the lottery supervision and administration system. The Ministry of Finance shall promptly revise and promulgate the Administrative Measures for the Public Welfare Fund of Lotteries, the Measures for the Financial Management of Lottery Agencies and the Administrative Measures for Lottery Distribution and Sale, and form a system of regulations and rules for lottery supervision and administration with the Regulations as the core, the Rules as the link and related administrative measures as supporting means, so as to provide effective institutional safeguards for promoting the sustainable and healthy development of lottery undertakings. Provincial finance departments shall perform their duties as set forth in the Regulations and the Rules to formulate and improve the implementing measures for lottery supervision and administration within their respective administrative regions in a timely manner, thus establishing a lottery supervision and administration institution system linking central and local authorities. They shall also study the establishment of a work system whereby lottery distribution and sales agencies shall report the situations of lottery distribution and sales to finance departments in a timely manner.

(2) It is important to improve the management systems and work standards for lottery distribution and sale as soon as possible. Lottery distribution and sale agencies shall, in compliance with the Regulations, the Rules and applicable supervision and administration systems, further improve the management systems, work standards and operating procedures in all aspects, including lottery distribution and sale, lottery drawing and claim, lottery fund management, and publicity and training, enforce the various policy measures and requirements prescribed by the Rules, manage personnel and operation affairs by using established systems, and effectively guard against lottery-related risks.

(3) It is a must to promptly clean up prevailing lottery administration policies and adjust lottery gaming rules. The Ministry of Finance shall, in accordance with relevant provisions of the Regulations and the Rules, clean up prevailing lottery administration policies, and adjust and improve those inconsistent with the Regulations and the Rules. Lottery distribution agencies shall follow the uniform formats and contents to comprehensively adjust and improve lottery gaming rules, and make public the same after reporting to the Ministry of Finance for review. In addition, the Ministry of Finance shall, in accordance with the Regulations, moderately reduce the percentage of lottery distribution fees with the expansion of the lottery distribution scale and the increase in lottery varieties.

(4) It is crucial to lose no time in building the lottery administration information system and distribution and sale system. Finance departments shall, in accordance with the Regulations, speed up the establishment of a lottery distribution, sale and fund management information systems. Lottery distribution and sale agencies shall follow the principle of unified distribution, administration and standards, lose no time in improving the distribution and sale system for welfare lotteries and sports lotteries to ensure its uniformity, efficiency and security.

(5) It is vital to improve the administration mechanism of lottery contracts and agency sale certificates as soon as possible. Lottery distribution and sale agencies shall adopt the model text of the lottery sales agency contract prepared by competent departments to conclude lottery sales agency contracts with lottery sellers. Both parties to such contracts shall strictly abide by laws, regulations, rules and relevant lottery administration policies, and effectively perform the lottery sales agency contracts. Lottery distribution agencies shall develop formats of agency sales certificates for welfare lotteries and agency sales certificates for sports lotteries as soon as possible. Lottery sales agencies, on the other hand, shall promptly issue lottery agency sales certificates as required to effectively safeguard the legitimate rights and interests of lottery participants.

(6) It is essential to improve, as soon as possible, the reporting and publicity system for management and utilization of the lottery welfare fund. Finance departments at all levels shall urge the entities managing and using the lottery welfare fund to establish and improve the reporting and publicity system for the lottery welfare fund, announce or release information to the public in a timely manner, and accept the supervision by finance departments, audit offices and the general public in accordance with the law. Infrastructure facilities, equipment or social welfare activities funded by the lottery welfare fund shall have the sponsor logo of the lottery welfare fund indicated in a readily identifiable way. Lottery distribution and sale agencies shall unswervingly uphold the social responsibilities of the lottery industry by reducing publicity concerning large prizes and instead highlighting publicity on public welfare, so as to enhance the credibility of national lotteries.

       二、抓紧建立健全各项配套管理制度和规范

    (一)抓紧完善彩票监督管理制度。财政部将及时修订发布《彩票公益金管理办法》、《彩票机构财务管理办法》、《彩票发行和销售管理办法》,形成以《条例》为核心、《实施细则》为纽带、相关管理办法为配套的彩票监督管理法规制度体系,为促进彩票事业持续健康发展提供有效的制度保障。省级财政部门要根据《条例》、《实施细则》规定的职责,及时制定完善本行政区域的彩票监督管理实施办法,形成中央与地方相互衔接的彩票监督管理制度体系。要研究建立彩票发行机构、彩票销售机构及时向财政部门报告彩票发行和销售情况的工作制度。

    (二)抓紧健全彩票发行和销售管理制度和工作规范。彩票发行机构、彩票销售机构要对照《条例》、《实施细则》及监督管理制度,进一步完善彩票发行和销售、开奖和兑奖、彩票资金管理、宣传与培训等各个环节的管理制度、工作规范和操作规程,把《实施细则》规定的各项政策措施和要求落到实处,做到用制度管人、管事,切实防范彩票风险。

    (三)抓紧清理现行彩票管理政策和调整彩票游戏规则。财政部将根据《条例》、《实施细则》的相关规定,清理现行彩票管理政策,与《条例》、《实施细则》规定不符的,要加以调整完善。彩票发行机构要按照统一的格式和内容,全面调整完善彩票游戏规则,报财政部审核后向社会公布。财政部将按照《条例》规定,随着彩票发行规模的扩大和彩票品种的增加,适度降低彩票发行费比例。

    (四)抓紧建设彩票管理信息系统和发行销售系统。财政部门要根据《条例》规定,抓紧建立彩票发行、销售和资金管理信息系统。彩票发行机构、彩票销售机构要按照统一发行、统一管理、统一标准的原则,抓紧健全福利彩票、体育彩票的彩票发行销售系统,确保统一、高效、安全。

    (五)抓紧完善彩票合同和代销证管理机制。彩票发行机构、彩票销售机构要根据有关部门制定的彩票代销合同示范文本,与彩票代销者签订彩票代销合同,当事双方都要严格遵守法律法规、规章制度和有关彩票管理政策,切实履行彩票代销合同。彩票发行机构要尽快制定福利彩票代销证、体育彩票代销证格式,彩票销售机构要按照规定及时发放彩票代销证,切实维护彩票参与者的合法权益。

    (六)抓紧健全彩票公益金管理使用报告和宣传制度。各级财政部门要督促彩票公益金的管理、使用单位,建立健全彩票公益金报告和宣传制度,及时向社会进行公告或者发布消息,依法接受财政部门、审计部门和社会公众的监督。彩票公益金资助的基本建设设施、设备或社会公益活动,要以显著方式标明彩票公益金资助标识。彩票发行机构、彩票销售机构要牢固树立起责任彩票和社会责任理念,减少大奖宣传,突出公益宣传,提升国家彩票的公信力。

3. It is required to make proper transition and coordination of relevant policies.

(1) The policies for lottery distribution and sales shall be properly adjusted and coordinated. Lottery distribution and sale agencies shall, in accordance with the Rules, entrust professional testing organizations to conduct technical testing where the examination and approval with respect to applications for offering new lottery varieties or applications for change of lottery varieties involves significant adjustments to certain technical programs. The special accounts for lottery funds shall cover a lottery fund collection and settlement account, and a lottery betting equipment deposit or bond account. They shall, prior to May 31 each year, announce to the public the sales volume of each lottery variety, the amount of prizes won, balance of the prize pool funds, balance of the adjustment fund and other information of the previous year.

(2) The policies for lottery distribution fees shall be properly adjusted and coordinated. Lottery distribution and sale agencies shall, by following the Rules and adapting to development needs of the lottery market, study and put forward operating fee accrual proportion schemes, and report the same to civil affairs departments or sports administrative departments at the same level for approval prior to the implementation thereof.

Lottery distribution and sale agencies shall accrue the lottery distribution and sales risk fund and the lottery claim revolving fund from their operating fees as required. The lottery distribution and sales risk fund shall be earmarked for covering the losses of lottery distribution and sale due to changes in the lottery market or force majeure events. The lottery claim revolving fund shall be earmarked for the turnover expenditures incurred in payment of prize money to lottery winners.

Once the operating fees of lottery sale agencies are put under centralized and unified administration at the provincial level, lottery sale agencies shall step up the adjustment and improvement of the mechanism for use and management of the operating fees, and follow their respective annual financial revenue and expenditure plan reviewed and approved by provincial finance departments to make overall arrangements for the sales of welfare lotteries and sports lotteries within their respective administrative regions, so as to ensure steady and healthy lottery sales.

(3) The policies for overdue unclaimed prize money shall be properly adjusted and coordinated. Prize money that is not claimed by February 29, 2012 shall be included into the lottery welfare fund, and be distributed pursuant to the prevailing policies on the lottery welfare fund. The portion of the lottery welfare fund that shall be handed over to the Central Finance shall be locally collected by the financial commissioner’s offices of the Ministry of Finance in all provinces, autonomous regions and municipalities directly under the Central Government, while the portion that shall be handed over to provincial finance shall be collected by provincial finance departments. With effect from March 1, 2012, overdue unclaimed prize money shall all be included into the lottery welfare fund which shall be handed over to provincial finance after settlement and collection by lottery sale agencies, and shall all be used to serve local purposes.

       三、认真做好相关政策衔接工作

    (一)做好彩票发行和销售政策调整衔接工作。彩票发行机构、彩票销售机构要按照《实施细则》的规定,申请开设彩票品种、或者申请变更彩票品种审批事项涉及对技术方案进行重大调整的,必须委托专业检测机构进行技术检测。开设的彩票资金专用账户,应当包括彩票资金归集结算账户、彩票投注设备押金或者保证金账户。要在每年5月31日前,向社会公告上年度各彩票品种的销售量、中奖金额、奖池资金余额、调节基金余额等情况。

    (二)做好彩票发行费政策调整衔接工作。彩票发行机构、彩票销售机构要根据《实施细则》有关规定和彩票市场发展需要,抓紧研究提出业务费提取比例方案,报同级民政部门或者体育行政部门商财政部门核定后执行。

    彩票发行机构、彩票销售机构要按照有关规定,在业务费中提取彩票发行销售风险基金和彩票兑奖周转金。彩票发行销售风险基金专项用于因彩票市场变化或者不可抗力事件等造成的彩票发行销售损失支出,彩票兑奖周转金专项用于向彩票中奖者兑付奖金的周转支出。

    彩票销售机构业务费实行省级集中统一管理后,彩票销售机构要抓紧调整完善业务费使用管理机制,要按照省级财政部门审核批准的年度财务收支计划,统筹安排用于本行政区域内的福利彩票、体育彩票销售工作,确保彩票销售工作稳定健康运行。

    (三)做好逾期未兑奖奖金政策调整衔接工作。2012年2月29日前,逾期未兑奖的奖金纳入彩票公益金,按现行彩票公益金分配政策执行。其中,上缴中央财政的彩票公益金,由财政部驻各省、自治区、直辖市财政监察专员办事处就地征收;上缴省级财政的彩票公益金,由省级财政部门负责征收。自2012年3月1日起,逾期未兑奖的奖金纳入彩票公益金,由彩票销售机构结算归集后上缴省级财政,全部留归地方使用。

4. The safe and sound operation of the lottery market shall be ensured.

Finance departments at all levels shall conscientiously perform their duties concerning lottery supervision and administration, improve regulatory means, refine regulatory elements, strengthen lottery supervision and administration, and severely punish violations of the Regulations and the Rules. They shall strengthen communication and coordination with civil affairs departments and sports administrative departments, and constantly improve the regular meeting and consultation system for lottery administration, so as to jointly promote the stable and healthy development of lottery undertakings. They shall also actively cooperate with public security organs and administrations for industry and commerce to investigate, punish and severely crack down on illegal lottery activities to purify the lottery market environment, and earnestly maintain the normal order of the lottery market.

Finance departments at all levels shall actively support lottery distribution and sale agencies to further optimize the lottery product structure, improve the operating efficiency of the lottery market, and maintain stable and healthy development of the lottery market. They shall also continue to support lottery distribution and sale agencies to strengthen infrastructure construction, reinforce the security management of the distribution and sale system, open sales outlets in a standardized manner, and lay a solid foundation for future development.

Lottery distribution and sale agencies shall follow the Regulations and the Rules to conduct a self-check and self-correction for unauthorized sales of lotteries over the phone and via the Internet. They shall strictly abide by the administrative provisions on lottery sale over the phone and via the Internet as formulated by the Ministry of Finance, steadily press ahead lottery sale over the phone and via the Internet, and implement such operations after review and approval by the Ministry of Finance. Without the approval of the Ministry of Finance, no lottery product or lottery game may be marketed over the phone or via the Internet.

Questions and suggestions on the enforcement of the Rules shall be promptly reported to the Ministry of Finance.

Ministry of Finance

February 1, 2012

       四、确保彩票市场安全平稳运行

    各级财政部门要认真履行彩票监督管理职责，完善监管手段，细化监管内容，加强彩票监督管理，依法严肃查处违反《条例》、《实施细则》的行为。要加强与民政、体育行政部门的沟通协调，不断完善彩票管理定期会商制度，共同促进彩票事业稳定健康发展。要积极配合公安机关和工商行政管理机关依法查处非法彩票，严厉打击非法彩票活动，净化彩票市场环境，切实维护彩票市场正常秩序。

    各级财政部门要积极支持彩票发行机构、彩票销售机构进一步优化彩票品种结构，提高彩票市场运行效率，保持彩票市场稳定健康发展。要继续支持彩票发行机构、彩票销售机构加强基础设施建设，强化发行销售系统安全管理，规范销售网点建设，夯实发展基础。

    彩票发行机构、彩票销售机构要对照《条例》和《实施细则》，自查自纠彩票销售机构、彩票代销者擅自利用电话、互联网销售彩票行为;要严格按照财政部制定的电话、互联网销售彩票管理规定，稳步开展电话、互联网销售彩票业务有关工作，经财政部审查批准后组织实施。未经财政部批准，任何彩票品种及彩票游戏不得利用电话、互联网销售。

    《实施细则》执行中有什么问题和建议，请及时向财政部报告。

    财政部

    二○一二年二月一日