Suggestions on Deepening Institutional Reform of Town/Township Water Affairs Administration of This Municipality

上海市水务局、上海市机构编制委员会办公室、上海市财政局关于本市深化乡镇水务管理体制改革的意见

Promulgating Institution: Shanghai Water Authority; Shanghai Municipal Staff Administrative Office; Shanghai Municipal Financial Bureau

Promulgating Date: 06/11/2007

Effective Date: 06/11/2007

颁布机关: 上海市水务局; 上海市机构编制委员会办公室; 上海市财政局

颁布时间: 06/11/2007

实施时间: 06/11/2007

In order to further strengthen the setup construction of the technical popularization of agricultural water conservancy at grass-roots level, put in order the integrated administrative system of town/township water affairs, in accordance with the spirit of the "Suggestions of the State Council on Deepening the Reform and Strengthening the Setup Construction of Agricultural Technical Popularization at Grass-Roots Level" (SC G [2006] No.30), the "Notice of the General Office of the State Council on Transmitting the Implementation Suggestions on the Institutional Reform of Water Conservancy Administration Made by the Office of the Institutional Reform of the State Council"(SC GO G [2002] No.54) and the "Suggestions of Shanghai Municipal People's Government on Deepening the Reform and Strengthening the Setup Construction of Agricultural Technical Popularization at Grass-Roots Level Made by the State Council" (SMPG G [2006] No. 54), suggestions on deepening the institutional reform of town/township water affairs administration in this Municipality are hereby put forward as follows:

    为进一步强化基层农业水利技术推广体系建设，理顺乡镇水务一体化管理体制，按照《国务院关于深化改革加强基层农业技术推广体系建设的意见》（国发〔2006〕30号）、《国务院办公厅转发国务院体改办关于水利工程管理体制改革实施意见的通知》（国办发〔2002〕45号）和《上海市人民政府贯彻国务院关于深化改革加强基层农业技术推广体系建设的实施意见》（沪府发〔2006〕54号）的精神，现就本市深化乡镇水务管理体制改革提出如下意见:

I. Fully Understanding the Significance of the Institutional Reform of Town/township Water Affairs Administration 

The town/township economy of suburbs in Shanghai is relatively well developed, and the water affairs at grass roots level are numerous and touch wide range of aspects due to the high density of population and concentrated network of river courses. Since the establishment and operation of existing management stations for town/township water irrigation and drainage, beneficial experience has been accumulated in technical popularization of agricultural water conservancy, and a relatively perfect system and network for town/township water conservancy management has been formed. Yet, in the face of new situation and new tasks, it is urgent to solve the protruding problems of unreliable fund resources for the administrative institutions of town/township water affairs, instability of the staff, and negligence of repairing water irrigation facilities and maintenance.

Deepening the institutional reform of town/township water affairs administration is an important measure for exercising effective control over water affairs in accordance with law , accelerating transform of governmental functions, and adapting to new requirements of the new situation. Since the implementation of the integrated administration of the municipal and district/county water affairs in 2000, the irrigation and drainage administrative stations for town/township water conservancy, acting as the institutions under the district/county competent water administrative departments, have undertaken a great many public services functions including anti-flood, drought elimination, protection of water resources, treatment and protection of water environment, etc.. Governments at all levels and their related departments shall, based on promotion of the overall situation of building the socialist new countryside, take full consideration of the professional nature of the water affairs and its important role, straighten out the system of water affairs administration at grass roots level, make full use of the irritation and drainage administrative stations for town/township water affairs, strengthen public welfare functions to serve the agriculture, the countryside and the peasants, and raise the administrative service level.

       一、充分认识深化乡镇水务管理体制改革的重要性

    上海郊区乡镇经济较发达,人口密度高,河道水网密布,基层水务工作面广量大。现有的乡镇水利排灌管理站成立运行以来,在农业水利技术推广方面积累了有益的经验,并形成了较为完善的乡镇水务管理系统和网络。但面对新形势、新任务,乡镇水务管理机构经费来源不落实、职工队伍不稳定,以及水利设施失修、失养等问题日益突出,亟待解决。

    深化乡镇水务管理体制改革,是实施依法治水管水、加快政府职能转变、适应新形势新要求的重要举措。2000年实行市、区县水务一体化管理以来,乡镇水利排灌管理站作为区县水行政主管部门所属事业单位,承担着大量的防洪、除涝、水资源保护、农业灌溉、水环境治理与保护等公共服务职能。各级政府和有关部门要立足于推进社会主义新农村建设的大局,充分考虑水务行业的专业性及其重要作用,理顺基层水务管理体制,充分利用现有的乡镇水利排灌管理站,强化为农业、农村和农民服务的公益性职能,提高管理服务水平。

II. Deepening the Institutional Reform of Town/township Water Affairs Administration

1. Guiding Ideology 

Taking Deng Xiaoping Theory, the important thought of the "Three Represents" and the scientific viewpoint of development as the guidance, centering on promoting the construction of socialist new countryside and building a harmonious socialist society, in accordance with the requirement of transforming governmental function and the spirit of the institutional reform, in combination with the reality of the suburban water affairs, it is necessary to fully promote segregation of administration from maintenance and separation of institutions and enterprises. Vitality shall be increased in the course of deepening the reform, development shall be pursued in innovating the mechanism, and the capability and level of the technical popularization of agricultural water conservancy and the overall development of serving the economy and society of suburbs shall be further raised.

2. Basic principles 

(1) Simplified unification, comprehensive efficacy. Rationally defining functions of town/township water affairs administrations, optimizing the structure, reducing overlapping, unifying the power and responsibilities, raising efficacy, handling well the relationship between affairs and authorities with town and township agricultural comprehensive services institutions.

(2) Clarification of functions and ensuring funds. Clearly defining the public welfare functions of flood resistance and elimination of water logging, management of water resources, anti-drought and water saving, harnessing and protection of water environment, and prevention and treatment of water pollution, etc., undertaken by town/township water affairs administrations and practically ensuring the funds needed by public welfare services. 

(3) Stable implementation and smooth promotion. Making unified studies of reform schemes of segregating administration from maintenance, separating institutions from enterprises, working out simultaneously contingency plans for both coordinated policies and ideological and political work, ensuring the scientific, systematic and operational nature of the reform schemes. "Pushing forwards one by one once it is mature" has to be implemented, so as to promote the reform in a stable and successive manner without any chaos.

3. Implementation measures

(1) The establishment of town/township water affairs administrative institutions 

A. Planning in overall, normalizing the establishment

Each district/county shall, according to town/township institutional reform requirements, in combination with the work nature of water affairs, with comprehensive consideration of the region area size, water gates of river courses and factors of water conservancy facilities, quantities etc., normalize the establishment of town/township water affairs institutions in accordance with the conditions of the river basin or the administrative zoning, on the basis of the existing irrigation and drainage administrative stations of town/township water conservancy, and the relationship between town/township water affairs institutions and district/county competent administrative departments shall be appropriately dealt with.

B. Combination of regional and central systems while giving priority to regional 

The town/township water affairs are of higher professional characteristics, so the town/township water affairs institutions shall, according to the spirit of the relevant document of the State Council, in combination of the actual circumstances of the suburbs in Shanghai, implement the administrative model of dual leadership of "combination of regional and central systems while giving priority to regional" within district/county administrative areas. "Giving priority to regional" means that the unified administration of personnel, finance and goods shall be carried out in the town/township water affairs institutions affiliated to district/county water authorities. "Combination of regional and central" means that the work staff of town/township water affairs institutions shall, in the relevant work of "giving priority to central" such as flood prevention and anti-disasters, etc., obey the town/township instructions and during the assessment and inspection of the work staff in town/township water affairs institutions, the town/township water authorities shall fully listen to the opinions of the town/township in the locality.

(2) Clarifying work responsibilities

By the requirement of "clarifying the public welfare functions", on the basis of further enhancement of the relevant services functions of agricultural technical popularization undertaken by town/township water affairs institutions, and in line with the integrated water affairs administrative system of combining "safety, resources, environment" three in one in this Municipality, the public services functions of town/township water affairs shall be put in the responsibility scope of town/township water affairs institutions, mainly as follows: 

A. Taking responsibility of making publicity and carrying out the relevant laws and regulations and guiding principles and policies in accordance with the requirements of exercising good control and management over water by law.

B. Assisting the competent water administrative departments at higher levels and the town/township in the locality to formulate the mid-term and long-term planning, and professional and annual implementation planning within the jurisdiction, and taking responsibility for the relevant administration of the construction of various specific water projects within the jurisdiction. 

C. Taking responsibility of the routine water affairs management related to anti - flood and elimination of water logging, management of water resources, drought resistance and water saving, harnessing and protection of water environment, and prevention and treatment of water pollution, etc. within the jurisdiction. Implementing good maintenance management for small scale water affairs facilities and enhancing the promotion and application of the water saving technology in agricultural irrigation. 

D. Taking responsibility of the organization and implementation of professional work for the fundamental construction of farmland water conservancy, maintaining water and soil, prevention of snail fever and related water affairs within jurisdiction.

E. Taking responsibility of harnessing small and medium river courses (water system) within jurisdiction, and performing a long-term effective administration.

F. Taking responsibility of the town/township routine work agencies in flood prevention and typhoon prevention working agencies in the locality. 

G. Assisting district/county competent administrative departments in professional administrative work in the field of water supply and drainage.

H. Accomplishing other related work assigned by the competent administrative departments at higher level and the party committee and governments in the locality.

(3) Determining posts for the staff

According to the eight functions of town/township water affairs institutions and the extending and expanding requirements of business under new situations, all districts/counties may, in accordance with the functions and tasks undertaken by town/township water affairs institutions, and in combination with the amount and coverage of local work of water affairs, etc., make a scientific estimation and rational determination of posts for the staff in town/township water affairs institutions, and correspondingly normalize the institutional authorized personnel administration, so as to ensure that the staff and posts of town/township water affairs are appropriate.

(4) Ensuring institutional funds

According to the requirement of "guaranteeing the supply for the funds required for implementing the public welfare functions", the fund for actual fixed personnel of a town/township water affairs institution and the fund for its necessary operation and maintenance shall be allocated after verification by district/county finance. All town/township water affairs institutions shall, in accordance with content and amount of the work, make a financial budget.

(5) Coordinating the reform in a good way

Firstly, strictly disciplining personnel management and normalizing the recruitment form. Town/township water affairs institutions shall, on the basis of fixing number of posts and fixing the number of staff, fully implement the contract regulations of unit employment, and appropriately sort out the personnel employed without authorization. They shall, on the basis of solving the operational fund of town/township water affairs administrative institutions, in accordance with the principle and requirement of "separating institutions from enterprises", "marketing mechanism", and "invigorating operational services", appropriately separate the enterprises they run, and normalize the labor employment of enterprises according to the provisions of the "Labor Law of the People's Republic of China" and the "Regulations of Shanghai Municipality on Labor Contracts". 

Secondly,strengthening supervision over the property and fund of the reform unit. In the course of reform implementation, all district/county governments and water authorities shall establish unified financial clearing team to clear accounts and property of the reform unit in a proper way, especially strengthen the administration of the fund beyond budget, and be on full alert for distributing money and goods by taking the advantage of the reform, so as to prevent the loss of the state property.

Thirdly, executing ideological education for the employees in a good way. All district/county governments and all relevant units shall do a good job of deep-going and painstaking work of ideological education, get hold of the strength and progress of the reforms and maintain close ties with the families of employees in straitened circumstances, spare no efforts to help the employees solve practical problems, to let them feel the warmness of the organization, to ensure the smooth promotion of the institutional reform of town/township water affairs.

The institutional reform of town/township water affairs administration shall be carried out under the leadership of district/county governments, and efforts should be taken to make a basic completion by the end of 2007. All district/county governments shall, according to these Suggestions, in combination with the actual circumstances of the locality, work out specific schemes, and work painstakingly to organize the implementation, so as to ensure the smooth promotion of the institutional reform of town/township water affairs administration.

Shanghai Water Authority

Shanghai Municipal Staff Administrative Office

Shanghai Municipal Financial Bureau

June 11, 2007

       二、深化乡镇水务管理体制改革

    （一）指导思想

    以邓小平理论、“三个代表”重要思想和科学发展观为指导，围绕推进社会主义新农村建设和构建社会主义和谐社会，按照转变政府职能的要求和事业单位的改革精神，结合郊区水务工作实际，全面推进管养分开和事企分离。在深化改革中增活力，在创新机制中求发展，进一步提高履行农业水利技术推广、服务郊区经济社会全面发展的能力和水平。

    （二）基本原则

    1、精简统一、综合效能。合理界定乡镇水务管理机构的职能，优化结构，减少交叉，权责统一，提高效能，处理好与乡镇农业综合服务机构的事权关系。

    2、明确职能、保障经费。进一步明确乡镇水务管理机构承担防洪除涝、水资源管理、抗旱节水、水环境治理与保护、水污染防治等公益性职能，切实保障公益性服务所需经费。

    3、分步实施、平稳推进。统筹研究管养分开、事企分离的改革方案，同步制定配套政策和思想政治工作预案，确保改革方案的科学性、系统性和可操作性。做到“成熟一个、推进一个”，使改革平稳有序、工作不断不乱。

    （三）实施办法

    1、乡镇水务管理机构设置

    （1）统筹规划，规范设置各区县要按照乡镇机构改革的要求，结合水务工作的特点，在综合考虑地域面积、河道水闸等水利工程设施数量等因素的基础上，按照流域状况或行政区划，在现有乡镇水利排灌管理站的基础上，规范设置乡镇水务机构，并要妥善处理好乡镇水务机构与区县水行政主管部门的关系。

    （2）以条为主，条块结合乡镇水务工作专业性较强，根据国务院有关文件精神，结合上海郊区的实际情况，乡镇水务机构在区县范围内仍应实行“以条为主、条块结合”的双重领导管理模式。以条为主，就是把乡镇水务机构仍然作为区县水务局所属的事业单位，实行人、财、物统一管理。条块结合，就是乡镇水务机构工作人员在防汛抗灾等以块为主的相关工作中，服从乡镇指挥;区县水务局对乡镇水务机构的工作人员考核考察时，应充分听取所在乡镇的意见。

    2、明确工作职责

    按照“明确公益性职能”的要求，在进一步强化乡镇水务机构所承担的相关农业技术推广服务职能的基础上，根据本市“安全、资源、环境”三位一体的水务一体化管理体制，将乡镇水务公益性服务职能纳入乡镇水务机构职责范围，其主要职能为:

    （1）按照依法治水、依法管水的要求，负责有关法律法规和方针政策等的宣传贯彻。

    （2）协助上级水行政主管部门及所在乡镇，编制辖区内水务中长期规划、专业规划及年度实施计划，并负责辖区内各类水务专项工程项目建设的相关管理。

    （3）负责辖区内的防洪除涝、水资源管理、抗旱节水、水环境治理与保护、水污染防治等涉水事务的日常管理。搞好小型水务设施维修养护管理，加强农业灌溉节水技术的推广应用。

    （4）负责辖区内农田水利基本建设、水土保持、水务血防等业务的组织实施。

    （5）负责辖区内中小河道（水系）治理，并做好相关长效管理工作。

    （6）负责所在乡镇的防汛防台工作机构的日常工作。

    （7）协助区县水行政主管部门做好有关供水、排水方面的行业管理工作。

    （8）完成上级水行政主管部门和所在乡镇党委、政府交办的其他相关工作。

    3、人员岗位确定

    根据乡镇水务机构的八项职能和业务在新形势下的延伸与拓展需求，各区县可根据乡镇水务机构承担的职能和任务，结合当地水务工作量和覆盖面等，科学测算、合理确定乡镇水务机构工作人员岗位，并相应规范机构编制管理，确保乡镇水务工作人员到位、工作到位。

    4、落实机构经费

    按照“保证供给履行公益性职能所需资金”的要求，对乡镇水务机构定编实有人员经费、必需的运行和维护等经费由区县财政核定后拨付。各乡镇水务机构根据工作内容和工作量，编制财政预算。

    5、搞好改革配套

    一是严格人员管理、规范用工形式。乡镇水务机构要在定岗定员的基础上，全面实施事业单位聘用合同制度，妥善清理非在编人员。要在解决落实乡镇水务管理机构运行经费的基础上，按照“事企分开”、“市场机制”、“放活经营性服务”的原则和要求，妥善分离所办企业，按照《中华人民共和国劳动法》和《上海市劳动合同条例》的规定，规范企业劳动用工。

    二是加强改革单位的资产、资金监管。在改革实施过程中，各区县政府和水务局要成立统一的财务清算小组，做好对改革单位的财务和资产的清算，特别是要加强预算外资金的管理，严防乘改革之机突击发钱发物，确保国有资产不流失。

    三是做好职工的思想教育工作。各区县政府和各有关单位要深入细致地做好思想政治工作，把握改革的力度和进度。要深入困难职工家庭，尽力帮助解决职工实际问题，让职工感受到组织的温暖，保证乡镇水务机构改革的顺利推进。

    乡镇水务管理体制改革在区县政府的领导下进行，力争在2007年底前基本完成。各区县政府要根据本意见，结合本地区实际，制定具体实施方案，精心组织实施，确保乡镇水务管理体制改革顺利推进。

    上海市水务局

    上海市机构编制委员会办公室

    上海市财政局

    二○○七年六月十一日