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国务院台湾事务办公室


以民为本 为民谋利 积极务实推进两岸“三通”


国务院台湾事务办公室

（二OO三年 十二月十七 日）

前 言

1949年以后的三十多年间，由于台湾海峡两岸处于军事对峙状态，两岸人员往来和通邮、通航、通商全部中断，两岸同胞处于隔绝状态。1979年元旦，全国人大常委会发表《告台湾同胞书》，为有利于两岸同胞互通讯息，探亲访友，旅游参观，发展经济、文化等各方面的关系，首倡两岸"双方尽快实现通邮，通航"，"发展贸易，互通有无，进行经济交流"。从此，祖国大陆方面为实现两岸通邮、通航、通商（"三通"）进行了不懈努力。1987年11月，台湾当局决定开放台湾同胞赴大陆探亲，受到大陆方面的欢迎，长达三十八年之久的两岸同胞隔绝状态终于被打破。此后，两岸人员往来和经济、文化等领域交流的开展，推动了"三通"进程。十几年来，两岸同胞往来与交流已经大大发展了。但令人遗憾的是，由于台湾当局的限制和阻挠，两岸"三通"仍然处于间接、单向、局部的状态。早日实现直接、双向、全面"三通"，符合两岸同胞的切身利益和根本利益。我们希望两岸同胞共同努力，积极务实推动两岸"三通"，造福子孙。

一、两岸"三通"现状及面临的问题

（一）两岸"三通"进展情况。

在两岸同胞的强烈要求及两岸业者的协商努力下，20多年来，两岸"三通"从无到有，取得不同程度的进展。

1、两岸通邮进展情况

在邮政业务方面。1979年，大陆方面正式开办对台平信和挂号信函业务。1989年，两岸邮件总包互相直封并经香港转运。1993年4月，海峡两岸关系协会与台湾海峡交流基金会签署《两岸挂号函件查询、补偿事宜协议》，两岸邮政部门正式互办挂号函件业务。

在电信业务方面。1979年，大陆方面开办对台电报、电话业务。1989年，台湾方面通过第三地开通对大陆电报和电话业务。1996年，中国电信与台湾中华电信建立两岸直接电信业务关系。通过1999年、2000年先后建成的中美、亚欧、亚太海底光缆，建立了两岸直达通信路由。两岸电信部门已开办电话、数据通信、移动电话漫游、电视电话等业务。两岸电信业务量迅速增加，分别占大陆、台湾境外业务量的第二位、第一位。

2、两岸通航进展情况

在海上通航方面。1979年8月，大陆方面倡议就两岸海上运输问题同台湾航运界进行协商，并宣布各对外开放港口均可对台湾船舶开放。为保障两岸航行安全，大陆一侧的灯桩解除了对台方的遮蔽；海岸电台对台湾船舶全面开放，为台湾船舶提供通讯导航服务；两岸救助部门建立搜救热线。1996年8月颁布的《台湾海峡两岸间航运管理办法》等法规，规范了两岸海上直航的基本事项。迄今，大陆方面共批准台湾航运公司在大陆沿海主要港口设立7家营业性机构和37家航运代表处。

1997年4月，福州、厦门和高雄间的海上试点直航开始运行，两岸资本的船公司使用方便旗船（或称权宜轮）经高雄港转运两岸外贸中转货物。1998年3月，两岸定期集装箱班轮航线开通，运输两岸货物的船舶经第三地换单不换船航行两岸港口。

2001年初，考虑到金门、马祖民众的需求，大陆方面为金、马与福建沿海地区的海上通航尽力提供协助。双方使用两岸资本并在两岸注册的船舶，采用只挂公司旗的方式，开通了两地海上客运、货运航线。

在空中通航方面。1981年10月，大陆民航主管部门表示随时准备与台湾有关方面进行两岸空中通航的谈判。1990年3月，颁布《中国大陆与台湾间民用航空运输不定期飞行的申请和批准程序的暂行规定》。1989年至1996年，两岸民航业界互为客货销售代理和开办"一票到底"、"行李直挂"等业务，签署了多项协议，开展了涉及票务、商务、机务、航务、服务等方面的合作。1995年12月、1996年8月，澳门航空、港龙航空分别开辟了澳台、港台航线，实现了大陆经澳门、香港至台湾"一机到底"的间接通航。1997年迄今，大陆有关方面批准4家台湾航空公司在北京设立代表处。

2003年春节期间，为便利台商返乡过年，大陆方面采取灵活务实的办法，特事特办，批准台湾6家航空公司共16架次包机，从台北、高雄经停港澳至上海往返接送台商。这是50多年来台湾航空公司的飞机首次循正常途径停降大陆机场。

3、两岸通商（贸易、投资、金融）进展情况

在两岸贸易方面。从1979年开始，大陆方面即对台湾产品开放市场，并给予免税、减税等优惠待遇。2000年12月，外经贸部颁布了《对台湾地区贸易管理办法》。两岸贸易金额1978年为0.46亿美元，2002年增至446.6亿美元，增长了近970倍。截至2003年9月底，两岸贸易总额累计3091.8亿美元，其中大陆对台出口488.9亿美元，自台进口2602.9亿美元，累计逆差达2114亿美元。自1991年始，大陆已成为台湾最大的顺差来源。根据2002年统计，大陆已成为台湾第一大出口市场，台湾是大陆第二大进口市场。

在投资方面。1988年7月，国务院颁布了《关于鼓励台湾同胞投资的规定》。1992年，台湾当局允许台湾同胞经第三地对大陆间接投资和进行技术合作。1994年3月，全国人大常委会通过了《台湾同胞投资保护法》， 1999年12月，国务院制定了《台湾同胞投资保护法实施细则》，各地方人大和政府也结合本地实际，制定了相应的地方性法规和行政规章，形成和完善了保护台胞合法权益的法律法规体系。大陆各有关部门和各地方不断改善投资环境，努力为台胞提供优质服务，促进了台胞投资。截至2003年9月底，大陆方面累计批准台资项目59458个，合同台资679.8亿美元，实际使用台资357.1亿美元。根据台湾有关方面统计，自1993年始，大陆成为台商对外投资的首选地区。

在两岸金融交流与合作方面。2002年，大陆的商业银行与台湾地区银行的海外业务分行（OBU）正式开办通汇及信用证相关业务；2003年，大陆的商业银行与台湾地区的外汇指定银行(DBU)也开通了通汇及信用证相关业务。截止2003年10月，大陆方面已批准设立2家台资银行、7家台湾地区银行的代表处、9家台湾地区保险公司和1家台湾地区保险经纪人公司的12个代表处、12家台湾地区证券公司的17个代表处。

在推进两岸"三通"的进程中，两岸民间行业组织不断就"三通"的技术性、业务性问题进行深入探讨，达成诸多共识。两岸通信业务商谈的成功实践，两岸海上试点直航的顺利运营，福建沿海与金门、马祖海上双向直航中的一些敏感问题的妥善解决，2003年春节台商包机的实施，说明两岸业者完全可以找到双方接受的办法。事实上，两岸直接"三通"的技术性、业务性问题均已解决。

（二）两岸"三通"仍处于间接、单向、局部的状态，限制了两岸同胞的交流交往和两岸经贸合作的发展。

在通邮方面。两岸邮件总包仍需经香港、澳门转运，而且业务种类少，邮政包裹、小包、汇兑、速递等项业务均不能开办。

在通航方面。两岸船舶、飞机不能直接往来；两岸人员旅行仍需经香港、澳门等地中转；试点直航不能运输两岸贸易货物，两岸贸易货物仍需经日本、香港等第三地中转，造成了"船通货不通，货通船不通"的怪象。

在通商方面。大陆市场向台湾企业和商品全面开放，而大陆产品输台受到诸多歧视性的限制，许多大陆较具优势及台湾同胞迫切需要的商品不能进入台湾；大陆的企业不能向台湾投资，必要的商务机构也不能在台设立；大陆企业难以在台湾举办或参加经贸展览会、洽谈会；大陆经贸人士赴台考察、访问也受到诸多限制。

（三）两岸直接、双向、全面"三通"未能实现的主要障碍在于台湾当局的阻挠。

长期以来，台湾当局无视两岸同胞的迫切愿望，也不顾台湾经济发展的需要，给两岸"三通"设置了重重障碍。从李登辉到台湾当局现任领导人，都一直以所谓"对等、安全、尊严"为借口，拖延和阻止"三通"。台湾当局在相关规定中，刻意对"三通"设置严格的限制条款，附加了种种政治条件，极力阻挠两岸"三通"谈判。台湾当局现任领导人一方面拒不接受一个中国原则，不承认"九二共识"，致使两岸对话与谈判无法恢复；另一方面又不接受简便易行的民间行业组织协商"三通"问题的办法，致使"三通"商谈迟迟不能启动。事实充分表明，台湾当局现任领导人虽然表示过"三通"不应成为一个问题，"是必走的路"，但是实质上毫无诚意，根本不愿意两岸交流和两岸关系得到正常发展。他不但自食其言、出尔反尔，百般拖延开放"三通"，而且极力使"三通"问题政治化、复杂化，甚至将两岸"三通"纳入其"一边一国"分裂主张的框架中去。台湾当局现任领导人破坏两岸关系发展、蓄意分裂祖国的立场和政策，是两岸直接、双向、全面"三通"迄今无法实现的根本原因。

二、实现 "三通"符合两岸同胞切身利益，是两岸实现互利双赢的根本途径。

（一）直接、双向、全面"三通"是两岸人员往来和经贸交流的客观需要。

1988年至2002年，共有超过2700多万人次的台湾同胞来大陆探亲访友、旅游考察、投资经营和从事两岸交流活动，大陆人员往来台湾也有70多万人次。2002年，两岸之间的客运量已近400万人次，贸易额超过400亿美元，货运量达数千万吨。不能直接、双向、全面"三通"，不仅给两岸同胞尤其是台湾同胞增加了经济负担，更耗费了大量时间和精力。

在客运方面。以乘飞机从台北途经香港到上海为例，台港往返机票每人次的费用为380美元，以2700万人次计，仅此一项，台湾同胞已损失约100多亿元美元；台北直飞上海仅需约1小时15分钟，中转香港后延长为约4小时，加上候机，时间浪费更甚。

在货运方面。以从上海港到高雄港海上货运为例，两地直线距离600海里，绕经日本石垣岛则增加232海里航程，既增加了运输成本，也延长了运输时间。空运直航后，不仅大量节省运输成本及时间，而且因物流配送效率的提升，将促进两岸贸易增长。

（二）直接、双向、全面"三通"有利于两岸经济共同发展。

两岸经济处于不同的发展阶段，经济合作存在着充分的互补条件和巨大的发展空间。十几年来两岸经济交往的历史，是两岸经济发展双赢的历史。

两岸经济交流与合作对台湾经济增长的贡献显而易见。台湾中华经济研究院研究显示，台湾对大陆的出口额每增加1美元，可直接、间接诱发台湾相关产业增加产值2美元。台湾从两岸贸易中获得的高额顺差，对保持台湾外汇储备增长贡献巨大。两岸贸易不断发展，成为支撑台湾经济成长的重要支柱。

直接、双向、全面"三通"的实现有利于台湾经济的持续发展。1988年以来，台湾劳动力密集型产业向大陆的转移，使其重获生机。近年台湾经济低迷、产业结构提升停滞、投资消费不振、失业率和民众痛苦指数上升，"三通"不通是重要因素之一。台湾工商界普遍认为，"三通"一旦实现，台湾的区位优势可以得到充分发挥，投资环境将得到显著改善；台湾企业还可以更充分地利用大陆的资源和市场发展壮大，使台湾经济得到更大的发展；大陆企业也可以向台湾投资，必将为台湾经济注入新的活力，创造新的商机。

两岸经济交流与合作也为大陆经济发展做出了重要贡献。台商投资为大陆带来了资金、技术、企业管理及营销经验，扩大了对外贸易，提供了税收。在大陆实现全面建设小康社会宏伟目标的进程中，台湾同胞将有更多的参与机会，在促进大陆经济发展的同时，自身也将获得更大的发展。

（三）直接、双向、全面"三通"有利于两岸同胞共同因应世界经济全球化和区域化发展的趋势，加强合作，抓住机遇，应对挑战。

当今世界，科技进步迅猛发展，经济全球化和区域化势头强劲，综合实力竞争日趋激烈。两岸同胞既面临机遇，也面临挑战。早日实现直接、双向、全面"三通"，将使两岸获得更充分的信息、更便捷的运输、更畅通的资金流动和更有效率的资源配置，各得其所，发挥潜能，大大提高两岸经济的竞争力，加快共同发展，促进中华民族经济的全面振兴。

十几年来，两岸关系历经坎坷、曲折，但是，人员往来和经济、文化等领域的交流始终保持发展的势头，推动两岸"三通"进程展现新的前景。这充分说明：两岸同胞同宗同文，有着不能割舍的民族感情，有着愈益深厚的共同利益。两岸"三通"，有利于两岸经济共同繁荣，符合两岸同胞的根本利益和切身利益。两岸人员往来和经济、文化等领域的交流创造的丰硕成果，使得实现直接、双向、全面"三通"具有厚实的基础和内在的动力。台湾各界要求尽快实现"三通"的呼声持续高涨。两岸同胞在推动"三通"中，有过多次成功的实践，积累了丰富的经验。大陆方面已经为"三通"做好了各方面的准备。总之，"三通"已是大势所趋，人心所向。

三、大陆方面关于两岸"三通"的基本立场和政策主张

大陆和台湾同属一个中国。中国是两岸同胞的中国，是两岸同胞的共同家园。任何制造所谓"台湾独立"、"两个中国"、"一中一台"的分裂图谋和行为，均为两岸同胞所反对。两岸"三通"，是两岸同胞共同利益之所在，也是两岸交往不断扩大的必然要求，不应受到任何人为因素和政治因素的阻碍。我们希望尽快实现两岸全面"三通"，以开创两岸经济合作新局面，造福于两岸同胞。基于上述基本立场，我们重申关于两岸"三通"的政策与主张。

（一）以民为本、为民谋利，是解决"三通"问题的立足点和出发点。在推进"三通"的过程中，只要真正对两岸同胞有利、对两岸人员往来有利、对两岸经贸关系发展有利，尤其对台湾同胞有利、对台湾工商界有利、对台湾经济发展有利的举措，我们都愿意务实推动，积极促成。

（二）"三通"是两岸间的事，是两岸中国人内部的事务。两岸"三通"，已表明了它的性质和定位。两岸空中、海上通航，即是两岸航线。任何人企图把两岸"三通"说成或作为"国与国"的或"准国际"的"三通"，或将其变相"国际化"，都是我们坚决反对的。

（三）搁置政治争议，不因政治分歧影响和干扰两岸"三通"。两岸"三通"属于经济问题。两岸之间的政治分歧不应成为阻挠"三通"的借口和障碍。"三通"商谈不是政治谈判，在这种商谈中可以不涉及一个中国的政治含义，寻求务实地解决"三通"中的各种具体问题，推动"三通"进程。

（四）直接双向、互惠互利、平等协商。按此精神推动实现的"三通"，才是真正的"三通"，才能扩大两岸经济交流与合作领域，使之持久、健康发展，达到维护和发展两岸同胞共同利益的目的。

（五）由两岸民间行业组织协商"三通"问题。为早日实现"三通"，协商方式可以尽量灵活，解决办法应当简单易行，力求使技术问题单纯化、解决方式便捷化。在台湾当局造成海协与海基会对话、商谈无法恢复的形势下，可采取由两岸民间行业组织协商"三通"的办法。这一协商方式的步骤是：（1）民间协商。两岸民间行业组织就"三通"问题进行协商，双方有关业务主管部门人员可以民间名义参与商谈。（2）达成共识。长期以来，两岸民间行业组织已就如何解决"三通"的技术性、业务性问题累积了大量经验。在此基础上，经两岸民间行业组织正式协商，即可达成共识。（3）各自确认。经商谈达成的"共识"、"协议"、"纪要"、"备忘录"或"商务安排"，经由两岸有关方面各自确认后，即可组织实施。这种解决办法无损于双方的权利。

（六）台湾当局应当尽早取消针对大陆的各种歧视性限制和不合理障碍。台湾当局对"三通"采取的间接、单向、局部等限制性政策，破坏了两岸正常的贸易和投资秩序，损害了公平竞争的市场环境，侵害了大陆和台湾相关企业的合法权益。2003年9月，台湾当局单方面宣布"两岸航空货运便捷化"措施，提出台湾航空公司的货运飞机可经停港澳往来两岸。对此，大陆民航主管部门认为，两岸货运包机经停第三地是舍近求远，两岸通航应由两岸航空业者公平地参与经营，这样才能健康持续发展，两岸同胞和工商业者才能得到实惠。不经双方民间航运业者协商，单方面宣布两岸货运便捷化时限，是不妥当的，也是大陆方面不能接受的。10月，在广大台湾同胞和工商界进一步要求开放两岸直接"三通"下，台湾当局有关方面部分放宽了一些限制两岸人员往来、贸易、投资的规定，但同时又附加了一些新的限制条件，继续拖延开放两岸直航。我们希望台湾当局从两岸同胞的共同利益出发，在实现两岸直接、双向通航方面，切实采取有效措施，做些实事， 尽快取消对大陆的各种歧视性限制和不公平待遇。

四、两岸"三通"中若干问题的说明

（一）关于两岸民间行业组织协商"三通"问题。

"三通"问题，原本可以通过已经建立的两岸协商机制进行商谈，即由海协与海基会商谈。两会于1992年达成各自以口头方式表述"海峡两岸均坚持一个中国原则"的共识，建构了两会商谈的政治基础。台湾当局现任领导人上台后，矢口否认"九二共识"，破坏了两会商谈的基础，致使两会对话、商谈迄今无法恢复。在这种情况下，并考虑到两岸民间行业组织多年来建立了顺畅的沟通渠道，就"三通"技术性、业务性问题进行过深入探讨并达成了许多共识，因此我们主张，由两岸民间行业组织就"三通"问题进行协商。这是现阶段最为务实可行的协商方式。

（二）关于两岸直航中飞机、船舶的旗、证问题。

两岸空运、海运业界在多年的交流中已就两岸空中、海上直航中飞机、船舶的旗、证等问题，取得相当的共识，两岸空运、海运也有成功的实践，为解决这些问题提供了可供遵循的依据。

在空中通航方面。根据国际民用航空公约及附件的有关规定，航空器必须有国籍或地区籍标志和登记标志，该标志须从国际电信联盟分配给登记国或地区的无线临时呼叫信号中的国籍或地区籍代号系列中选择。目前，大陆和台湾的航空器标志均为英文字母"B"。因此，两岸直航的航空器已不存在标志问题。关于直航中涉及的主要证照的查验问题，可由负责运营的台湾地区航空公司向大陆民航主管部门出具所需证照的合格证明，经认可后，该航空公司即可提出申请。这一简单易行、务实灵活的做法，已在2003年春节台商包机业务实施过程得到运用和验证，为解决今后两岸双向直航中的相关问题提供了有益的经验。

在海上通航方面。两岸直航船舶的挂旗、验证问题，可以参照"九七"后港台航线和福建沿海地区与金门、马祖通航的相关办法解决，即：直航两岸的船舶，只挂公司旗或双方商定的标志旗，进港时不挂对方旗；双方须查验的有关证书，必要时可另纸签注。

（三）关于外国公司参与两岸航运的问题。

两岸通航不是"国与国之间的通航"，两岸航线不是国际航线，应由两岸的空运、海运公司或两岸合资的航运公司经营。在两岸注册的中外合资的空运、海运公司可以参与经营，但外资方面不得控股。我们的上述主张，既有利于确保中国航运主权不受侵犯的原则，又有利于维护两岸中国人的正当权益。

（四）关于实现"三通"与所谓"台湾安全"的问题。

台湾当局以两岸实现"三通"尤其是直接、双向通航将严重危及台湾的安全，作为阻挠两岸直接、双向、全面"三通"的最主要理由。最近台湾有关方面将安全问题分列为军事安全、政治安全（主要是台湾在政治上被矮化）、经济安全（主要是台湾经济对大陆市场依赖度大幅提升、产业空洞化、失业率上升）、社会安全（主要是治安、疫病防治、社会福利与教育负担等）。除了社会安全所针对的可能性问题，可以在"三通"问题协商中加以讨论、预作安排外，其余看法均缺乏事实依据，而是台湾当局顽固坚持敌对意识的产物，目的在于影响台湾同胞对"三通"的态度，继续拖延、阻挠"三通"。因此，有必要予以指正。

关于"直航将严重威胁台湾军事安全"。首先，就大陆对台政策而言，两岸同胞情同手足，血浓于水，没有人比我们更希望通过和平方式解决台湾问题。大陆方面以最大的诚意、尽最大努力争取和平统一的前景。我们不承诺放弃使用武力，针对的是外国势力干涉中国统一和台湾分裂势力的"台独"图谋，决不是针对台湾民众。其次，有关两岸海上和空中直航的技术性、业务性安排等问题，须经双方平等协商并取得一致意见后方能实施。台湾方面对自身安全的关切届时能得到妥善解决。第三，两岸试点直航已开通六年，福建沿海与金门、马祖海上直航也已开通两年多，从未出现过任何影响台湾"军事安全"的问题，也没有给台湾带来任何所谓的"威胁"。相反，这种直接往来有利于营造台海地区和谐安定的气氛。第四，实现和维护台湾海峡地区和平与稳定的根本途径在于，台湾当局必须彻底放弃"台独"分裂主张，停止一切"台独"分裂活动，并且就"在一个中国原则下，正式结束两岸敌对状态"进行谈判，达成协议，共同维护国家主权和领土完整，并对今后两岸关系发展进行规划。两岸敌对状态越降低，台海地区越祥和，两岸关系越发展，两岸同胞的安全越有保障。

关于在两岸"三通"协商过程中"台湾在政治上被矮化"。我们一贯主张，两岸之间应当本着相互尊重、平等协商的精神，以务实的态度解决双方的分歧和各种问题，任何一方都不将自己的意愿强加给另一方。以往海协与海基会的历次商谈，以及两岸民间行业组织之间的各种交流和磋商，双方都是平等的，不存在谁"矮化"谁的问题。在两岸试点直航及福建沿海与金门、马祖的海上通航中，双方间运力安排及技术问题的处理，均充分体现了平等互惠的原则，实现了互利双赢。今后协商"三通"问题，包括解决市场开放、相关管理、经营权益安排等，依然是遵循相互尊重、平等协商、公平合理、互惠互利的原则精神。根本不存在所谓台湾在"三通"过程中可能被"矮化"的问题。

关于"'三通'将冲击台湾经济安全"。其一，关于"三通"使台湾经济对大陆市场依赖度上升而产生安全问题。两岸经济各具优势，互补性强。在两岸经济交流与合作中，台湾经济从大陆经济迅速发展中获得了增长的动力，产业结构调整获得了有利条件，企业获得新的发展空间，促进了台湾经济的发展，近20年来的事实已经充分证明了这一点。在经济全球化和区域经济合作的大潮中，如果实现"三通"，两岸经济各展所长，密切合作，将更有利于两岸防范经济金融风险，实现共同繁荣。只要站在台湾同胞利益和经济发展需要的立场上来看问题，就会得出这种结论。

其二，关于"三通"加速台湾产业移往大陆、导致台湾产业"空洞化"问题。产业"空洞化"一般是指制造业在总体经济中的比重下降，以及制造业生产力及国际竞争力降低。台湾有关部门的研究表明，1990年至2001年间是台湾企业投资大陆增长较快的时期。在此期间，台湾产品在全球市场的出口占有率并未下降，反而由1.96%升至2.0%，并没有造成台湾制造业的总体生产力和竞争力的衰退，导致出现所谓产业"空洞化"现象。相反，两岸"三通"有利于台湾企业合理调配和使用生产要素及资源。通过分工合作，可以发挥台湾经济的优势，增强发展潜力和提高竞争力，有效避免产业"空洞化"。

其三，关于台湾企业对大陆投资导致岛内失业率上升问题。近几年台湾失业率上升主要是企业投资意愿下降所致。台湾当局现任领导人坚持"台独"分裂立场，破坏两岸关系，阻挠两岸"三通"，打击了台湾民间及海外投资者的信心，是其中的一个重要原因。同时，台湾失业率上升也有结构性失业的原因。随着台湾投资和生产成本的上升，台湾劳动密集型产业进一步失去竞争优势，不得不寻找低成本的地区继续发展。这类企业在大陆投资经营，不仅使其自身重获竞争力，而且能够利用在大陆投资的收益增强在台湾的投资能力，支持台湾新兴产业的持续成长，大幅带动了对大陆的出口。 这些都对扩大台湾就业、产业升级和经济稳定发挥了重要作用。

结 束 语

我们对实现两岸直接、双向、全面"三通"的前景充满信心。合则两利，通则双赢，早通比晚通好。我们呼吁台湾当局尽快采取实际措施，消除阻挠实现两岸直接、双向、全面"三通"的障碍。我们真诚地希望，广大台湾同胞与我们一道共同努力，争取尽早实现两岸直接、双向、全面"三通"，开创两岸关系的新局面。

English Edition：Actively and Realistically Promote "Three Direct Links" Across the Taiwan Straits by Reliance on the People and in the Interests of the People



Actively and Realistically Promote "Three Direct Links"
Across the Taiwan Straits by Reliance on the People
and in the Interests of the People

Taiwan Affairs Office of the State Council

(December 17, 2003)

Foreword

Owing to the military confrontation across the Taiwan Straits in the past 30 years or more since 1949, people-to-people contacts and direct links in mail, transport and trade between the two sides of the Taiwan Straits were totally suspended, resulting in total division between the compatriots across the Straits. On New Year's Day 1979, the Standing Committee of the National People's Congress (NPC) of the People's Republic of China (PRC) issued a message to compatriots in Taiwan. In a bid to make it easier for family members, relatives and friends of compatriots on both sides of the Straits to visit each other, to communicate, travel, and develop economic, cultural and other ties, the message initiated a proposal for "starting postal and air and shipping services across the Straits as soon as possible," and "developing trade, supplying each other's needs, and conducting economic exchanges." The mainland has since spared no effort in forging direct links in mail, transport and trade (hereinafter referred to as the "three direct links," or "three links") across the Straits. In November 1987, the Taiwan authorities made the decision to permit Taiwan compatriots to visit their relatives on the mainland, which was welcomed by the mainland and ended the 38-year-long severance between the two sides of the Straits. People-to-people contacts and economic and cultural exchanges across the Straits have since made developed, and thus accelerated the progress of the "three direct links." Such contacts and exchanges have made much headway in the past dozen years. But, to our regret, the cross-Straits "three links" remains in an indirect, one-way and partial state due to restrictions and obstructions imposed by the Taiwan authorities. An early realization of direct, two-way and complete "three links" will be in the immediate and fundamental interests of people on both sides of the Straits. We hope that compatriots on both sides will make concerted efforts and actively and realistically promote the "three direct links" across the Straits, so as to bring benefits to our posterity.

I. The Status Quo of the "Three Direct Links" Across the Straits and the Problems to Be Solved

1. Progress of the "Three Direct Links"

Under strong demand from compatriots, and due to negotiations and efforts by business circles, on both sides of the Straits, the "three direct links" have started from scratch and progressed to varying degrees.

(1) Postal Link

Mail Service

The mainland formally launched ordinary and registered mail services with Taiwan in 1979. In 1989 inter-Straits direct postal parcel delivery was established via Hong Kong. In April 1993, the mainland-based Association for Relations Across the Taiwan Straits (ARATS) and the Taiwan-based Straits Exchange Foundation (SEF) signed the Agreement on Inquisition and Compensation of Registered Letters Across the Straits. Registered letter service hence went into formal operation across the Straits.

Telecommunication Service

In 1979, the mainland started telegraph and telephone services with Taiwan. In 1989, Taiwan opened telegraph and telephone services with the mainland via a third place. In 1996, China Telecom and the Taiwan-based Chunghwa Telecom set up direct telecom business ties. And direct telecommunication channels across the Straits were set up through Sino-American, Eurasian and Asia-Pacific seabed optical cables constructed in 1999 and 2000. The telecommunication departments of both sides have launched mutual telephone, data communication, mobile phone roaming and videophone services. Cross-Straits telecom business has been booming, accounting for the largest and second-largest shares of the overseas telecom business of Taiwan and the mainland, respectively.

(2) Transport Link

Shipping Service

In August 1979, the mainland proposed for negotiations on sea transportation across the Straits with the shipping community in Taiwan, and declared that Taiwan ships would have access to all its open ports. In order to ensure navigation security across the Straits, the mainland offered the services of mainland lighthouses to ships from Taiwan, and fully opened offshore radio service to Taiwan ships to provide them with communication and navigation services. In addition, the two sides co-founded a search and rescue hotline. Relevant regulations, such as Measures for Shipping Management Across the Taiwan Straits, promulgated in August 1996, standardize essential matters concerning direct shipping across the Straits. So far, seven business offices and 37 shipping agencies for Taiwan-based shipping companies have been given approval to be set up at key ports on the mainland's coastal areas.

In April 1997, direct shipping between Fuzhou and Xiamen, and Gaoxiong entered trial operation. Mainland- and Taiwan-invested shipping companies can use vessels with a flag of convenience to transport foreign transshipment trade cargos of both sides via Gaoxiong Port. In March 1998, a regular container shipping route was inaugurated across the Straits, whereby cargo ships calling at ports across the Straits require change of documents rather than vessels at a third place.

In consideration of the demand of the people in Jinmen and Mazu, in early 2001 the mainland provided every possible assistance for shipping between the two islands and the coastal areas of Fujian Province. Vessels funded by and registered on either side of the Straits can conduct passenger and cargo transport across the Straits by flying only company flags.

Air Service

In October 1981, the mainland's civil aviation administration expressed readiness to negotiate at any time with its Taiwan counterpart on an air link across the Straits. In March 1990, the mainland released the Provisional Regulations on Application and Approval Procedures for Nonscheduled Flights of Civil Aviation Transport Between the China Mainland and Taiwan. From 1989 to 1996, the civil aviation sectors of both sides each served as sales agencies in passenger and cargo transport for the other, and commenced one-ticket and through baggage services between them. They signed several agreements on cooperation in the aspects of ticket-booking, commerce, plane maintenance, aviation and services. In December 1995 and August 1996, Air Macao and Dragonair opened Macao-Taiwan and Hong Kong-Taiwan air routes, respectively, realizing indirect air links between the mainland and Taiwan via Macao and Hong Kong. Since 1997, four Taiwan airlines have been given approval to set up their representative offices in Beijing.

In 2003, the mainland adopted flexible and practical measures aimed at handling special cases with special methods, to facilitate Taiwan business people's return to the island for the Spring Festival: Six Taiwan airlines were given approval to operate charter planes 16 times to carry Taiwan business people to commute between Taibei and Gaoxiong and Shanghai via Hong Kong and Macao. This was the first time in 50-plus years that Taiwan-operated planes had landed at a mainland airport by a normal approach.

(3) Business Link (Trade, Investment and Finance)

Trade

Since 1979, the mainland has opened its market to Taiwan products, offering them preferential treatment such as tax exemption or reduction. In December 2000, the Ministry of Foreign Trade and Economic Cooperation of the PRC released Measures for the Administration of Trade with the Taiwan Area. The cross-Straits trade volume was a mere US $46 million-worth in 1978, but it shot up to US $44.66 billion-worth in 2002, approximately 971 times as much as the 1978 figure. By the end of September 2003, the accumulated volume of cross-Straits trade had totaled US $309.18 billion-worth, of which US $48.89 billion-worth came from mainland's exports to Taiwan, and US $260.29 billion-worth from Taiwan's imports, the mainland's trade deficit with Taiwan amounting to an accumulative total of US $211.4 billion. Since 1991 the mainland has become Taiwan's No.1 source of trade surplus. According to statistics, in 2002 the mainland had become the largest export market for Taiwan, and the island was the mainland's second-largest import market.

Investment

In July 1988, the State Council of the PRC issued the Regulations for Encouraging Investment by Taiwan Compatriots. In 1992 the Taiwan authorities permitted Taiwan compatriots to make indirect investment in, and carry out technical cooperation with, the mainland via a third place. In March 1994, the Standing Committee of the NPC adopted the Law on the Protection of Investment by Taiwan Compatriots. In December 1999, the State Council formulated the Detailed Rules for the Implementation of the Law on the Protection of Investment by Taiwan Compatriots, and local people's congresses and governments accordingly worked out corresponding local regulations and administrative rules in light of local conditions. A legal system was therefore formed or improved to protect the legal rights and interests of Taiwan compatriots in the mainland. Relevant departments and local governments in the mainland have made continuous efforts to improve investment environment and provide good service for Taiwan compatriots, thereby promoting their investments. By the end of September 2003, a total of 59,458 Taiwan-invested projects had been approved on the mainland, with the contractual value of Taiwan investment totaling US $67.98 billion, and the actually utilized Taiwan investment totaling US $35.71 billion. According to statistics from Taiwan, Taiwan business people have since 1993 taken the mainland as their first choice for outside-the-island investment.

Financial Exchanges and Cooperation

In 2002, mainland-based commercial banks officially started remittance and letter of credit business with the offshore bank units (OBU) of Taiwan-based banks. In 2003, they further opened this businesses with the domestic bank units (DBU) in Taiwan. By October 2003, the mainland had approved the establishment of 2 Taiwan-invested banks, representative offices of 7 Taiwan-based banks, 12 representative offices of 9 Taiwan-based insurance companies and 1 Taiwan-based insurance brokerage company, and 17 representative offices of 12 Taiwan-based securities companies.

In the process of promoting the "three direct links," nongovernmental trade organizations across the Straits have carried out in-depth discussions time and again on relevant technical and professional issues involved in the "three direct links," and reached consensus in many aspects. Negotiations on inter-Straits communication have been going on successfully. Trial direct navigation across the Straits is operating smoothly. Delicate issues concerning two-way direct shipping between coastal areas of Fujian Province and Jinmen and Mazu have been properly resolved. Meanwhile, Taiwan-operated charter planes for the first time transported Taiwan's businesspeople across the Straits during the 2003 Spring Festival. All these facts show that businesspeople on both sides can undoubtedly find methods acceptable to both sides. As a matter of fact, both the technical and professional issues involved in the "three direct links" have been settled.

2. The Current Indirect, Two-way and Partial State of the "Three Direct Links" Has Impeded the Exchanges and Contacts Between Compatriots and the Development of Economic and Trade Cooperation Across the Straits.

Mail

Cross-Straits postal parcels have to be delivered via Hong Kong or Macao. Postal business is of a limited scope, and parcel post, small parcel post, remittance and express delivery services still remain unopened.

Transport

Direct shipping and flight are still unavailable. Cross-Straits travelers therefore have to transit via a third place such as Macao or Hong Kong. Cross-Straits cargos are ineligible for trial direct shipping, and have to be transshipped via a third place such as Hong Kong or Japan. Here arises the curious phenomenon of "cross-Straits cargo ships bringing in no cargos and arriving cargos not being brought by cargo ships."

Trade

The mainland market has been completely opened to Taiwan enterprises and commodities, while the mainland's exported commodities are subject to many discriminatory restrictions in Taiwan. Many of the mainland's advantageous commodities that are in high demand in Taiwan can find no access to the island. Mainland enterprises are not allowed to invest in Taiwan, or to set up their necessary business agencies there. It is difficult for mainland enterprises to hold or attend economic and trade exhibitions and business talks in Taiwan. And the mainland's businesspeople face many restrictions on investigation tours of or visits to Taiwan.

3. The Failure to Realize Direct, Two-way and Complete "Three Links" Is Mainly Attributed to Obstruction by the Taiwan Authorities.

For a long time in the past, the Taiwan authorities have set up numerous barriers to inter-Straits "three direct links," in disregard of the eager desire of compatriots across the Straits and the demands of Taiwan's economic growth. Lee Teng-hui and the current leader of the Taiwan authorities have both tried to stall and obstruct the "three direct links" on the pretext of seeking "equality, security and dignity." The Taiwan authorities have willfully added stringent restrictive clauses to regulations concerning the "three direct links," attaching to them various political prerequisites in an attempt to hamper cross-Straits negotiation on the "three direct links." On the one hand, the current leader of the Taiwan authorities refuses to accept the one-China principle or acknowledge the "1992 common understanding." As a result, cross-Straits dialogue and negotiation cannot be resumed. On the other hand, he refuses to accept the simple and facile method of having nongovernmental trade organizations negotiate "three direct links" matters, causing protracted delay in the opening of the "three direct links" negotiation. Facts have spoken volumes that, although the current leader of the Taiwan authorities has indicated that the "three direct links" should not be a problem and is "an inevitable way to go," in essence he is unwilling at all to see the cross-Straits exchanges and the normal development of inter-Straits relations. He has broken his promise, gone back on his word, and done everything in his power to postpone the opening of the "three direct links." What's more, he has tried every possible means to politicize and complicate the "three direct links" issue, even to try to incorporate it in his framework of separatist proposition of "one country on each side." The stand and policies of the current leader of the Taiwan authorities aimed at disrupting the development of cross-Straits relations and splitting the motherland are the root cause of the failure so far to realize the direct, two-way and complete "three links."

II. Realization of the "Three Direct Links" Accords with the Immediate Interests of Compatriots Across the Straits, and Is the Fundamental Way to Attaining Mutual Benefit and a Win-Win Situation.

1. The Direct, Two-Way and Complete "Three Links" Is an Objective Demand for People-to-People Contacts and Economic and Trade Exchanges Across the Straits.

Between 1988 and 2002, more than 27 million Taiwan people visited their relatives and friends, traveled, conducted investment or engaged in other cross-Straits exchanges on the mainland, whereas well over 700,000 mainlanders visited Taiwan. In 2002 the cross-Straits volume of passenger transport approached four million, the trade volume exceeded US $40 billion-worth, and the volume of cargo transport reached anything up to tens of millions of tons. Failure to institute the direct, two-way and complete "three links" has not only increased the economic burden on compatriots across the Straits, particularly Taiwan compatriots, but also wasted much of their time and energy.

Passenger Transport

On a flight from Taibei to Shanghai via Hong Kong, a round-trip ticket only from Taiwan to Hong Kong will cost US $380. This means that 27 million people will spend a total of well over US $10 billion more than necessary. A direct flight from Taibei to Shanghai would take only one hour and 15 minutes, but when flying via Hong Kong as the stopover, the flight time will be extended to about four hours, not including waiting time in Hong Kong.

Freight Transport

The direct distance between Shanghai Harbor and Gaoxiong Harbor is 600 nautical miles, but sea transportation bypassing Japan's Ishigaki Island is 232 nautical miles longer, a voyage costing more money and taking more time than necessary. The adoption of a direct air transport service will definitely save time and reduce transport costs by wide margins, and cross-Straits trade will be increased as a result of improved efficiency of goods flow.

2. The Direct, Two-Way and Complete "Three Links" Will Help Boost Inter-Straits Economic Development.

Currently, economy on both sides of the Straits is in different stages of development. There are adequate conditions for mutual complementality and also much room for development in their economic cooperation. The history of cross-Straits economic exchange over the past dozen years is a "win-win" history of cross-Straits economic development.

Cross-Straits economic exchange and cooperation have contributed more than obviously to Taiwan's economic growth. According to the Taiwan-based Chung Hua Institution for Economic Research, every growth of US $1 in Taiwan's exports to the mainland will bring an increase of US $2 of direct or indirect output value to the relevant Taiwan industries. Taiwan's huge favorable trade balance with the mainland has contributed greatly to the growth of its foreign exchange reserve, and continuous cross-Straits trade development will be of vital importance to Taiwan's economic growth.

The attainment of the direct, two-way and complete "three links" will help ensure Taiwan's sustained economic growth. Since 1988, the shift of Taiwan's labor-intensive industries to the mainland has rejuvenated these industries. The obstruction of the "three direct links" has been one of the important causes of Taiwan's economic stagnation, slowed industrial structure upgrading, reduced investment, decreased consumption, increased unemployment rate and soaring index of people's plight over the past few years. Taiwan's industrial and commercial circles believe that realization of the "three direct links" will bring Taiwan's advantageous geographical location into full play, and greatly improve its investment environment; that Taiwan's enterprises can make full use of the mainland's resources and markets to further develop themselves, and promote Taiwan's economic development; that, in return, mainland enterprises can also make investments in Taiwan, which will undoubtedly inject new vitality into Taiwan's economy and create more business opportunities.

Cross-Straits economic exchange and cooperation have contributed significantly to the mainland's economic development as well. Taiwan investors have brought funds, technology, enterprise management know-how and marketing experiences to the mainland, helped expand its overseas trade and increased its tax revenue. Taiwan compatriots have more opportunities to participate in the mainland's march toward the magnificent goal of building a better-off society in an all-round way, and they themselves will achieve further development while helping to boost the mainland's economic development.

3. The Direct, Two-Way and Complete "Three Links" Will Help Compatriots on Both Sides of the Straits Jointly to Adapt to the Trends of Economic Globalization and Regionalization, Strengthen Cooperation, Seize Opportunities and Meet Challenges.

In the world today, science and technology are progressing by leaps and bounds, economic globalization and regionalization are gaining momentum, and competition in comprehensive strength is becoming increasingly acute. The people on both sides of the Straits are faced with both opportunities and challenges. The early achievement of the direct, two-way and complete "three links" will provide both sides of the Straits more sufficient information, more convenient transport, more smooth capital circulation, and more efficient resources allocation. In this way, each of the two sides will be properly placed and each will bring its own potential capacity to play, to the point of helping greatly to enhance the economic competitiveness of both sides, accelerate mutual development and boost the overall economic rejuvenation of the whole Chinese nation.

During the past decade or more, inter-Straits relations have undergone twists and turns, but cross-Straits people-to-people contacts and economic and cultural exchanges, have all along remained on the rise, opening up new prospects for the progress of the "three direct links." These fully demonstrate the congenial connections of the people on both sides of the Straits, their sharing the same language and national feeling and their having increasingly deep common interests. The "three direct links" will help toward common economic prosperity and accord with the fundamental and immediate interests of people on both sides of the Straits. Cross-Straits people-to-people contacts and economic and cultural exchanges have yielded abundant returns, which serve as both a solid foundation and an inner impetus for achieving the direct, two-way and complete "three links." People from all walks of life in Taiwan are ardently calling for the early realization of the "three direct links." Compatriots on both sides of the Straits have performed many successful deeds and gained a wealth of experience in the process of promoting the "three direct links," while, on its part, the mainland has made full preparations in all aspects for the attainment of the "three direct links." In a word, the "three direct links" is the trend of the times and the will of the people.

III. The Mainland's Basic Stand and Policies on the "Three Direct Links"

Both the mainland and Taiwan belong to one China. China is the common homeland of compatriots on both sides of the Straits. Any separatist attempt and action aimed at cooking up "Taiwan Independence," "two Chinas," and "one China, one Taiwan" will be opposed by people on both sides of the Straits. The "three direct links" accords with the common interests of the people across the Straits. It is the inevitable requirement of constantly expanding cross-Straits contacts and should not be hampered by any artificial or political factors. We hope to realize the "three direct links" at an early date and across the board, so as to open up a new situation for cross-Straits economic cooperation and benefit compatriots on both sides of the Straits. Proceeding from this basic stand, we wish to reaffirm our policies and propositions concerning the "three direct links."

1. Relying on the People and Working for the Wellbeing of the People's Are Our Stand and Purpose in the Resolution of the "Three Direct Links" Issue.

During the process of promoting the "three direct links," we will actively and pragmatically help promote the measures that will genuinely benefit the compatriots, people-to-people contacts, and the development of economic and trade relations between the two sides of the Straits, and, especially, benefit the Taiwan compatriots, and industrial and commercial circles and Taiwan's economic development as a whole.

2. The "Three Direct Links" Is a Cross-Straits Affair and an Internal Affair of Chinese People on Both Sides of the Straits.

The cross-Straits "three direct links" has itself manifested the nature of the issue as an internal affair of Chinese people. Cross-Straits direct air and shipping services are air and shipping routes across the Straits. We resolutely oppose anyone who attempts to describe "three direct links" as links "between nations" or as "quasi-international" links, or to "internationalize" them in disguised form.

3. Shelve Political Disputes and Prevent Political Differences from Affecting and Interfering with the "Three Direct Links"

The "Three direct links" is purely an economic matter. Political differences between the two sides of the Straits should not be used as a pretext or obstacle for obstructing the "three direct links." Negotiations concerning the "three direct links" are not political negotiations; they may be carried out beyond the political implications of one China, but should seek for practical resolution of the various concrete problems involved, so as to accelerate the progress of the "three direct links."

4. Direct and Two-Way Links, Reciprocity and Mutual Benefit, and Consultation on the Basis of Equality

The "three direct links" promoted and achieved in this spirit will be the "three direct links" in the true sense of the term, and only in this way can cross-Straits economic exchange and cooperation be expanded, and be developed in a sustained and healthy way, so as to attain the goal of safeguarding and improving the common interests of compatriots on both sides of the Straits.

5. Let Nongovernmental Trade Organizations on Both Sides of the Straits Conduct Consultation on the "Three Direct Links" Issue

To realize the "three direct links" as soon as possible, consultation may be conducted as flexibly as possible, the measures for resolution of the problem should be simple and feasible, technical problems should be to simplified, and the methods of resolving it easy and convenient. Given the situation caused by the Taiwan authorities, in which dialogues and consultation between the ARATS and SEF cannot be resumed, it may be feasible for nongovernmental trade organizations on both sides of the Straits to conduct such consultation on the "three direct links" issue. First, to hold consultation on a nongovernmental basis. Consultation may be conducted by such organizations on the issue, in which officials of relevant competent departments from both sides may participate in negotiations in the nongovernmental capacity. Second, to reach a consensus. Over the years, nongovernmental trade organizations on both sides have gained rich experience in how to solve technical and professional problems related to the "three direct links." Under these circumstances, formal consultation between these organizations can lead to a consensus. Third, to make respective confirmation. The "consensus," "agreement," "summary of minutes," "memorandum" or "business arrangement" attained after negotiations should be implemented upon confirmation by each side. This method of settlement will not bring any harm to either side, in terms of their rights.

6. The Taiwan Authorities Should Remove Discriminatory Restrictions and Unreasonable Obstacles Directed Against the Mainland As Soon As Possible.

The indirect, one-way and partial approach and other restrictive policies adopted by the Taiwan authorities on the "three direct links" issue have disrupted the normal order of cross-Straits trade and investment, damaged the market environment of fair competition, undermined the legal rights and interests of relevant mainland and Taiwan enterprises. In September 2003, the Taiwan authorities unilaterally declared "a simplified program for cross-Straits cargo air transport," in which, Hong Kong and Macao are designated as the stopovers for cross-Straits round trips by the air freighters of Taiwan airlines. The civil aviation administrative department on the mainland holds that chartered air freighters from either side of the Straits stopping over in a third place will amount to "rejecting what is near at hand and seeking for what is far away," and that cross-Straits air and shipping services should be equally operated by airlines from both sides, so as to maintain healthy and sustained development for such services and benefit compatriots and industrial and commercial circles across the Straits. Taiwan's simplified program for cross-Straits cargo flights, in which it unilaterally declared the time limitation of flights without consultation between nongovernmental air transport operators on both sides of the Straits, is inappropriate, and also unacceptable to the mainland. In October, at the further request of Taiwan compatriots and industrial and commercial circles for opening the "three direct links," the Taiwan authorities relaxed some restrictive regulations concerning cross-Straits people-to-people contacts, trade and investment, but at the same time setting some additional conditions, in order to continue to postpone the opening of cross-Straits direct air and shipping services. We hope that the Taiwan authorities will, starting from the common interests of compatriots on both sides of the Straits, take practical and effective measures for opening cross-Straits direct, two-way air and shipping services, and abolish discriminatory restrictions and unfair treatment against the mainland at an early date.

IV. Explanations on Some Questions Related to the "Three Direct Links"

1. Consultation on the "Three Direct Links" Question Between Cross-Straits Nongovernmental Trade Organizations

The "three direct links" question could have been discussed through the existing cross-Straits consultative mechanisms, namely the ARATS and the SEF. In 1992, the two organizations reached the common understanding that each should express verbally that "both sides of the Taiwan Straits adhere to the one-China principle," thus laying the political foundation for consultation between the ARATS and SEF. However, after coming to power the present leader of the Taiwan authorities categorically negated the "1992 common understanding," thus undermining the foundation for consultation between the two organizations, rendering it impossible yet for them to resume their dialogue and consultation. In these circumstances and considering that nongovernmental trade organizations across the Straits have already established smooth communication channels over the years, these organizations have conducted in-depth discussions on technical and professional questions related to the "three direct links," and have reached consensus in many aspects. Therefore, we propose that cross-Straits nongovernmental trade organizations conduct consultation on the "three direct links" issue. This is the most practical and feasible pattern of consultation at the present stage.

2. The Flag and Certificate in Cross-Straits Direct Air and Shipping Services

The air and maritime transport circles on both sides of the Straits have reached some understanding through many years of exchange of opinions on how to deal with aircraft and ship flag and certification paper problems in cross-Straits direct air and shipping services. This, plus the successful practices in cross-Straits air and maritime transport, has provided a referential basis for the solutions of these problems.

Air Service

According to relevant provisions in the International Convention on Civil Aviation and its appendixes, an aircraft must have the national or regional identity symbol and registration symbol, both of which must be selected from among the national or regional identity codes of their temporary wireless call signs given to the registering nation or region by the International Telecommunications Union. The aircraft symbols of both the mainland and Taiwan are the same English letter, B, thus the aircraft symbol question will not arise in direct air transport across the Straits. For main-certificate check and approval involved in direct air transport, a Taiwan-based airline company in charge of the operation may present a qualified certification paper for the necessary certificate to the mainland's civil aviation administrative department, and, upon approval, it may file its application. This simple, practical and flexible procedure was applied and verified in handling Taiwan businesspeople's charter plane business at the 2003 Spring Festival, providing useful experience for resolving problems to be involved in the two-way direct air transport across the Straits.

Shipping Service

The ships' flag and certification problems in cross-Straits direct shipping service can be resolved with reference to the relevant procedure adopted for the navigation lines for shipping service between Hong Kong and Taiwan after the reunion of Hong Kong with the motherland in 1997, as well as for the shipping service between Fujian's coastal areas and Jinmen and Mazu. That is to say that a ship of either side navigating directly across the Straits will need only to fly the company's flag or a flag with symbols agreed upon by the two sides, and, when entering a port of the other side, it will not need to fly the flag of the other side; and that one side should check the relevant certification papers of the other side and, if necessary, may write its comments on a separate paper.

3. Participation of Foreign Companies in Cross-Straits Air and Shipping Services

The air and shipping services across the Straits are by no means "state to state air and shipping services," nor are Cross-Straits air and shipping international lines, therefore they should be operated by mainland and Taiwan airlines and shipping companies or by mainland-Taiwan joint ventures. Sino-foreign joint airlines and shipping companies registered with the authorities on either side may participate in such business operations, but the foreign partners of such companies are not allowed to have the dominant share. These propositions of ours are conducive not only to safeguarding the principle of preventing China's sovereignty over aviation and navigation from being infringed upon, but also to protecting the legitimate rights and interests of the Chinese people on both sides of the Straits.

4. The "Three Direct Links" and the So-called Taiwan Security

The Taiwan authorities assert that the "three direct links," especially the direct, two-way air and shipping services across the Straits will seriously jeopardize the security of Taiwan, and take this assertion as their main reason for impeding the direct, two-way and complete "three links." Certain Taiwan organizations recently classified its security issue into the four issues of military security, political security (mainly, Taiwan's being dwarfed politically), economic security (mainly, Taiwan's markedly increasing economic dependence on the mainland market, its industrial "hollowing" and its growing unemployment rate), and social security (mainly, public order, epidemic prevention, social welfare and education burden). Apart from those possible problems relating to social security that can be discussed and pre-arranged in the "three direct links" consultations, the other viewpoints are ungrounded in facts; rather they are products of the Taiwan authorities' inveterate hostility toward the mainland, their purpose being to influence Taiwan compatriots' attitude toward the "three direct links" and continue to postpone and obstruct the "three direct links." These viewpoints need to be pointed out and corrected.

The Assertion That "Direct Air and Shipping Services Will Seriously Jeopardize Taiwan's Military Security." First, according to the mainland's policy on the Taiwan, the people on both sides of the Straits are bound together like brothers and sisters, and, as the saying goes, "Blood is thicker than water." We cherish greater hope than any others for s黑龙江省佳木斯市人民政府


关于印发佳木斯市应急救援工作管理暂行办法的通知

佳政发〔2011〕4号


各县（市）区人民政府，市政府直属各单位，驻佳中省直单位：

经市政府领导同意，现将《佳木斯市应急救援工作管理暂行办法》印发给你们，请遵照执行。


　　　　　　　　　　　　　　　　　　　　　　　　　 佳木斯市人民政府

　　　　　　　　　　　 　二○一一年三月三十一日


　　　　　　　　　　　　　　　　　　佳木斯市应急救援工作管理暂行办法

　　第一章 总则

　　第一条 为整合应急救援工作资源，规范应急救援行动，控制、减轻和消除突发事件引起的严重危害，保护人民生命财产安全，依据《中华人民共和国突发事件应对法》、《中华人民共和国消防法》等法律法规和《国务院办公厅关于加强基层应急队伍建设的意见》，制定本办法。
　　第二条 本办法所称应急救援，是指应急救援队伍组织营救和救治受灾人员，疏散撤离并妥善安置受到威胁人员，迅速控制危险源，防止次生事故发生，以及采取其他救助措施的行为。
　　第三条 县级以上人民政府建立统一领导、综合协调、分类管理、分级负责、属地处置为主的应急救援体制。
　　第四条 各级人民政府要将综合应急救援队伍和有关专业应急救援队伍的建设与工作经费纳入同级财政预算。按照政府补助、社会捐赠相结合等方式，建立多途径的应急救援队伍经费保障渠道。
　　第五条 全市应急救援队伍在执行应急救援任务时，应坚持“救人第一，科学施救”的指导思想，按照“第一时间调集足够力量和有效装备，第一时间到场展开，第一时间实施救人，第一时间控制灾情发展，最大限度地减少损失和危害”的要求，组织实施应急救援行动。

　　第二章 组织机构和职责

　　第六条 县级以上人民政府应当建立完善应急救援体系。
　　（一）设立应急救援指挥机构。由政府分管应急管理工作的负责人担任指挥长，政府应急救援管理机构、公安、安监、驻地人民武装警察部队等综合应急救援队伍负责人担任副指挥长，承担应急救援职责的部门、单位负责人为成员。
　　（二）按照“资源整合、不重复建设”的原则，依托各级公安机关通信调度指挥中心，完善综合应急救援通信调度指挥中心建设。
　　（三）依托各级公安消防部队组建公安消防综合应急救援队伍。
　　（四）按照突发事件类别，依托各部门、行业组建专业应急救援队伍。
　　（五）街道办事处、乡镇人民政府和安全生产责任较重的企事业等单位，组织具有相关救援专业知识与经验的人员建立专（兼）职应急救援队伍；
　　（六）建立应急管理专业人才库，聘请有关专家组成应急救援专家组。
　　第七条　各级综合应急救援通信调度指挥中心应履行以下职责：
　　（一）受理突发事件报警，处置突发事件。
　　（二）建立本地区统一的突发事件信息系统，汇集、储存、分析、传输突发事件隐患和预警信息。
　　（三）应当按照有关规定向本级政府报送突发事件信息，向相关部门通报突发事件信息。
　　（四）监督专业机构、监测网点和信息报告员应当及时向本级政府报告突发事件信息。
　　第八条 佳木斯市综合应急救援队伍由市公安消防综合应急救援支队、县（市）区公安消防综合应急救援大队组成，其主要领导由市公安消防支队、县（市）区公安消防大队负责人担任。市应急救援支队领导县（市）区应急救援大队。
综合应急救援队伍应履行以下工作职责：
　　（一）除承担消防工作以外，同时承担综合性应急救援任务，包括地震等自然灾害，建筑施工事故、道路交通事故、空难等生产安全事故，恐怖袭击、群众遇险等社会安全事件的抢险救援任务，同时协助有关专业队伍做好水旱灾害、气象灾害、地质灾害、森林草原火灾、生物灾害、矿山事故、危险化学品事故、水上事故、环境污染、核与辐射事故和突发公共卫生事件等突发事件的抢险救援工作。
　　（二）健全组织机构，建立应急救援现场工作机制，制定完善相关应急救援预案并开展演练。
　　（三）加强应急救援装备、物资配备和储备。
　　（四）掌握研究队伍建设情况，协调指导专业、专（兼）职应急救援队伍的训练、演练。
　　（五）根据各级政府授权，调度指挥专业、专（兼）职应急救援队伍处置灾情。
　　第九条 专业应急救援队伍组织体系保持原有管理体制不变，负责人由各应急救援相关部门、成员单位负责人担任，并报各级政府综合应急救援队伍建设领导小组备案。
　　专业应急救援队伍应履行以下工作职责：
　　（一）健全组织机构，加强队伍建设，做好应急救援准备。
　　（二）制定完善相关应急预案并组织演练。
　　（三）组织培训、训练、演练和管理，接受综合应急救援队伍的业务指导。
　　（四）组织本专业的应急救援装备、物资配备和储备。
　　（五）承担本行业突发事件的应急救援工作，根据灾情需要，参与处置政府或政府授权综合应急救援队伍调度的其他应急救援工作。
　　第十条 专（兼）职应急救援队伍负责人由本单位分管领导担任，并报政府综合应急救援队伍建设领导小组备案。
　　专（兼）职应急救援队伍应履行以下工作职责：
　　（一）加强队伍的训练和管理，制订应急救援预案并开展训练演练。
　　（二）加强应急知识和技能培训。
　　（三）承担本地区、本单位突发事件的先期处置和应急救援工作，根据灾情需要，参与处置政府或政府授权综合应急救援队伍调度的其他应急救援工作。
　　第十一条 应急救援专家组应履行以下工作职责：
　　（一）落实应急救援专家组联席会议制度。
　　（二）参与应急救援的分析研判，提供决策建议，制定应对方案。
　　（三）参与应急救援教育培训工作及相关学术交流与合作。
　　（四）承担各级政府委托的其他工作。

　　第三章 预警和指挥

　　第十二条 综合应急救援队伍和专业、专（兼）职应急救援队伍必须建立严格的24小时值班制度，保持常备不懈和指挥不间断。值班人员必须熟悉本部门、单位的应急预案，掌握应急救援队伍实力，督促检查指挥、通信系统处于规定的状态，保证随时接受上级的命令、指示和下级的请示报告，及时妥善处置。
　　第十三条 各级政府应当根据有关法律、法规、规章规定的权限和程序，在可以预警的自然灾害、事故灾难及公共卫生事件即将发生或者发生的可能性增大时，发布相应级别的警报，决定并宣布有关地区进入预警期，同时向上一级人民政府报告。
　　第十四条 进入三级、四级警报预警期后，各级综合应急救援指挥通讯调度中心应当根据即将发生的突发事件的特点和可能造成的危害，以本级政府的名义第一时间采取下列措施：
　　（一）命令综合应急救援队伍启动本级应急预案，根据政府授权调度专业、专（兼）职应急救援队伍参加应急救援处置工作。
　　（二）及时收集、报告有关信息，向社会公布反映突发事件信息的渠道，加强对突发事件发生、发展情况的监测、预报和预警工作。
　　（三）组织专业技术人员、有关专家学者，提供决策和建议。
　　（四）组织本辖区应急力量和应急资源实施先期处置工作。
　　（五）在第一时间向上级政府报告。
　　第十五条　进入一级、二级警报预警期后，各级综合应急救援通讯调度指挥中心应当针对即将发生的突发事件的特点和可能造成的危害，以本级政府的名义采取下列一项或者多项措施。
　　（一）命令综合应急救援队伍建议上级启动应急预案获取增援，向上级指挥中心请求调度其他辖区专业、专（兼）职应急救援队伍增援，动员后备人员参加应急救援和处置工作。
　　（二）调集应急救援所需物资、设备、工具，启用应急设施和避难场所。
　　（三）加强对重点单位、重要部位和重要基础设施的监测保护。
　　（四）采取必要措施，确保交通、通信、供水、排水、供电、供气等公共设施的安全和正常运行。
　　（五）通过媒体及时向社会发布有关采取特定措施避免或者减轻危害的建议、劝告。
　　（六）转移、疏散或者撤离易受突发事件危害的人员并予以妥善安置，转移重要财产。
　　（七）关闭或者限制使用易受突发事件危害的场所，控制或者限制容易导致危害扩大的公共场所的活动。
　　（八）法律、法规、规章规定的其他必要的防范性、保护性措施。
　　第十六条 突发事件发生后，各级政府应当针对其性质、特点和危害程度，立即组织有关部门，调动应急救援队伍和社会力量，依照相关预案的规定采取应急处置措施。
　　第十七条 县级以上人民政府应当根据应急救援需要，成立现场指挥部，负责现场的应急处置工作，现场指挥部由现场最高政府首长任指挥长，属地政府及相关部门、综合应急救援队伍负责人为成员。
　　第十八条 突发事件发生后，各级综合应急救援队伍和专业、专（兼）职应急救援队伍应根据上级指令及现场情况，采取下列应急处置措施。
　　（一）组织营救和救治受害人员，疏散、撤离并妥善安置受到威胁的人员以及采取其他救助措施。
　　（二）迅速控制危险源，标明危险区域，封锁危险场所，划定警戒区，实行交通管制以及其他控制措施。
　　（三）立即抢修被损坏的交通、通信、供水、排水、供电、供气、供热等公共设施，向受到危害的人员提供避难场所和生活必需品，实施医疗救护和卫生防疫以及其他保障措施。
　　（四）禁止或者限制使用有关设备、设施，关闭或者限制使用有关场所，中止人员密集的活动或者可能导致危害扩大的生产经营活动以及采取其他保护措施。
　　（五）必要时依法征用其他急需物资、设备、设施、工具。
　　（六）保障食品、饮用水、燃料等基本生活必需品的供应。
　　（七）采取防止发生次生、衍生事件的必要措施。
　　第十九条 履行统一领导职责或者组织处置突发事件的人民政府，负责向参加现场处置的综合应急救援队伍提供人力、物力、财力或者技术支援，要求生产、供应生活必需品的组织保证供给，要求提供医疗、交通等公共服务的组织提供相应的服务。
　　第二十条　受到自然灾害危害或者发生事故灾难、公共卫生事件的单位，根据本单位力量立即组织先期处置，尽最大可能防止危害扩大，同时向所在地人民政府报告。
　　第二十一条 各级政府应当按照有关规定统一、准确、及时通报有关突发事件事态发展和应急处置工作的信息。

　　第四章 训练和保障

　　第二十二条 各部门和单位应按照政治坚定、业务精良、身体健康的标准，严格选拔优秀人员充实到本部门和单位的专业、专（兼）职应急救援队伍。
　　第二十三条 各应急救援队伍应加强管理教育，积极组织训练，定期进行考核。各类应急管理机构每年应定期组织综合、专业、专（兼）职应急救援队伍进行有关法律法规、应急救援知识和技能的培训，增强救援人员的应急意识，提高实战能力。
　　第二十四条 各应急救援队伍应按照县级以上人民政府总体、专项应急预案和部门应急预案，根据灾情需要，结合本单位实际制定和完善应急预案，并报本级政府备案。
　　第二十五条 在政府的统一领导下，各专业、专（兼）职应急救援队伍对本部门、单位的应急预案每年组织不少于1次演练。各级综合应急救援队伍每年应根据本级人民政府总体、专项和部门应急预案，组织不少于1次综合演练。
第二十六条 县级以上人民政府要本着“有效整合资源、节约经费投入、实现合理布局、达到资源共享”的原则，依托消防培训基地、消防战勤保障大队、消防站和其他物资储备单位，建立市、县（市）区应急救援培训基地。
　　第二十七条 各部门、单位应根据应急预案和可能遂行的应急救援行动，配备、储备、补充足够数量的装备、器材、物资，做到专人保管、定期保养维护、适时更新、确保完好，并建立应急救援装备物资报告制度，将相关情况及时上报本级政府备案。

　　第五章 法律责任和奖惩

　　第二十八条 在处置突发事件时，有关部门或单位不履行法定职责、滥用职权、玩忽职守的，根据《中华人民共和国突发事件应对法》等有关法律规定，对有关部门或单位及责任人员依法进行处理。
　　第二十九条 综合、专业、专（兼）职应急救援队伍参加非本辖区、本专业、本单位应急救援工作期间，其在本单位的工资和福利待遇不变。对表现突出、成绩显著的单位和个人，由当地人民政府按照国家有关规定给予表彰或者奖励。各部门、单位可依据本部门、本单位的规定给予表彰或者奖励。
县级以上人民政府对在应急救援工作中伤亡的救援人员依法给予抚恤。

　　第六章 附则

　　第三十条 突发事件分级。
　　各类突发事件按照其性质、严重程度、可控性和影响范围等因素，一般分为四级：Ⅰ级（特别重大）、Ⅱ级（重大）、Ⅲ级（较大）和IV级（一般）。
I级突发事件。是指事态极其复杂，对全市的政治稳定和社会秩序造成严重危害和威胁，造成或者可能造成特别重大人员伤亡、财产损失或环境污染等后果的突发公共事件。在国务院或省政府的统一领导和指挥下，由市政府突发公共事件应急委员会统一协调全市各方面资源和力量实施处置和应对。预警等级为一级，用红色表示。
　　II级突发事件。是指事态复杂，对一定范围内的人员安全、社会财产、政治稳定和社会秩序造成严重危害和威胁，造成或者可能造成重大人员伤亡、财产损失或环境污染等后果的突发事件。在省政府的统一领导和指挥下，由市政府突发公共事件应急委员会组织各专业应急机构或事件主管单位并调度市有关部门、县（市）区应急委等相关单位联合处置和应对。预警等级为二级，用橙色表示。
III级突发事件。是指事态比较复杂，仅对辖区一定范围内的社会财产、人员安全、政治稳定和社会秩序造成严重危害和威胁，造成或者可能造成较大人员伤亡、财产损失或环境污染等后果的突发事件。由市政府突发公共事件应急委员会统一领导和指挥，组织、调度有关部门或相关专业应急机构实施处置和应对。预警等级为三级，用黄色表示。
　　IV级突发事件。是指事态简单，仅对辖区较小范围内的社会财产、人员安全、政治稳定和社会秩序造成较大危害和威胁，造成或者可能造成人员伤亡、财产损失的突发事件。由市政府突发公共事件应急委员会或市政府突发公共事件应急委员会授权的事发地突发事件应急委员会和专业应急机构实施处置和应对。预警等级为四级，用蓝色表示。
　　第三十一条 本办法自发布之日起施行。