南通市人民政府关于印发《南通市餐饮业污染防治管理办法》的通知
江苏省南通市人民政府
南通市人民政府关于印发《南通市餐饮业污染防治管理办法》的通知
各县(市)、区人民政府,市经济技术开发区管委会,市各委、办、局,市各直属单位:
《南通市餐饮业污染防治管理办法》已经2011年7月18日市十三届人民政府第58次常务会议审议通过,现予印发施行。
二○一一年七月十九日
南通市餐饮业污染防治管理办法
第一条 为加强对餐饮业的环境管理,根据《中华人民共和国环境保护法》、《中华人民共和国环境影响评价法》和《建设项目环境保护管理条例》等有关法律、法规,结合本市实际,制定本办法。
第二条 凡在本市市区和县属建制镇内从事餐饮服务的单位和个人,均应当遵守本办法。
第三条 本办法所称餐饮业,是指通过即时加工制作、商业销售和服务性劳动等手段,向消费者提供食品、食品消费场所和设施的食品生产经营行业,包括餐馆、小吃店、快餐店、对外开放的食堂和提供餐饮服务的宾馆、浴场、歌舞厅、咖啡馆、茶座等单位。
第四条 市、县(市)环境保护行政主管部门对本行政区域内的餐饮业污染防治工作实施统一监督管理。区环境保护行政主管部门负责辖区范围内餐饮业污染的监督管理工作,查处未依法办理环境影响评价审批手续的行为。
第五条 建立市区餐饮业污染防治工作责任制,明确相关行政管理部门职能分工。
规划部门负责依法做好餐饮业建设项目的选址、建设用地规划许可及建设工程规划许可。
建设部门依法做好餐饮业建设项目的施工许可、竣工验收备案等工作。
卫生部门负责依法核发餐饮服务许可证,依法查处无证经营餐饮的行为。
工商部门负责依法核发餐饮经营店营业执照,依法查处无照经营餐饮的行为。
城管部门负责监督餐饮经营店店容店貌符合城市容貌标准,对餐厨废弃物进行监督管理。
其他相关行政管理部门、各区人民政府(管委会)以及街道办事处(乡镇人民政府)、社区居(村)委会等基层组织,应根据各自职责共同做好餐饮业污染防治管理工作。
第六条 城市改造和开发建设应当规划和建设餐饮业相对集中的商业经营区域。餐饮业选址应当符合城市规划、环境保护和城市商业网点布局的要求。
第七条 不得在下列区域和场所新建、改建、扩建餐饮业项目:
(一)非经营性房屋;
(二)不具备设立专用烟道的商住房屋;
(三)在城市居住区、居住小区内按照规划设计要求配套的,与相邻最近居民住宅边界的直线距离小于30米的房屋;
(四)饮用水地表水源一级保护区域;
(五)城市建成区内不具备接入城市排污总管条件的区域;
(六)距离粪坑、污水池、垃圾场(站)、旱厕等污染源小于25米的区域;
(七)江、河水面区域;
(八)其他依法需要特殊保护的区域。
在上述场所和区域内申请兴办餐饮业项目的,有关行政主管部门不得批准。
第八条 利用物业管理用房、场地、公共设施等新建、改建、扩建餐饮业项目的,应当经专有部分占建筑物总面积2/3以上的业主且占总人数2/3以上的业主同意。
物业所有人或管理人不得将物业出租、出借给其他单位或个人无证照兴办餐饮业项目。
第九条 餐饮业项目应达到下列污染防治要求:
(一)配置经国家认可的单位检测合格的油烟净化装置、废气净化装置,油烟排气筒的设置当符合国家有关标准,油烟排放口位置应距离居民住宅、医院或者学校10米以上,油烟排放应符合GB18483-2001《饮食业油烟排放标准(试行)》;
(二)配置污水处理设施,上下水设施齐备,安装油水隔离池、油水分离器等,污水排放符合GB8978-1996《污水综合排放标准》和CJ343-2010《污水排入城市下水道水质标准》;
(三)安装符合环保要求的消音、降噪设备,在主要街道两侧和重点地区的临街建筑物外立面直接朝向人行道安装空调装置的,其安装架底距地面应当大于2米,确因客观条件限制的,不得小于1.9米,在居民门窗附近安装空调装置的,不得直接朝向居民门窗等敏感点,且距离应大于3米;
(四)具有防蝇、防鼠、防虫、防潮设施和相关措施;
(五)设置符合标准的餐厨废弃物收集容器,分类收集餐厨废弃物和非餐厨废弃物。
第十条 新建、改建、扩建餐饮业项目,应当按照《建设项目环境保护分类管理名录》依法办理环境影响评价文件审批手续。其中餐饮业项目在6 个基准灶头以上,涉及环境敏感区的应提交环境影响报告表,其他的应填写环境影响登记表。
环境保护行政主管部门应当自收到环境影响评价文件之日起15日内,作出审批决定并书面通知建设单位。
第十一条 用于餐饮业的建筑物在设计时应当设计餐饮业专用烟道、污水排放设施,安排废气、噪声等污染防治设施的安装位置。
餐饮业建设项目的防治污染设施必须与主体工程同时设计、同时施工、同时投产使用。防治污染设施必须经原审批环境影响评价文件的环境保护行政主管部门验收合格后,该建设项目方可投入生产或者使用。
防治污染设施不得擅自拆除或者闲置,确有必要拆除或者闲置的,必须征得所在地的环境保护行政主管部门同意。
第十二条 应当办理环境影响评价文件审批手续的餐饮业建设项目,未经环境保护行政主管部门审查或审查后未予批准的,规划、建设等项目相关审批部门不得办理相关许可手续,建设单位不得开工建设。
需要办理营业执照的餐饮业项目,应当在办理营业执照前办理环境影响评价文件审批手续及餐饮服务许可证。未办理的,工商行政管理部门不予核发工商营业执照。
第十三条 环保、卫生、消防等相关部门应编制餐饮业经营审批手册,工商行政管理部门在受理餐饮业经营注册登记时,要协助相关部门向申请人发放审批手册,并提醒其依法办理相关审批手续。
第十四条 工商、环保、卫生、城管、商务、消防等相关部门应加强审批信息沟通协作。工商行政管理部门将企业名称预先核准信息通报环保、卫生、城管、商务、消防等相关部门后,相关部门应提前介入,对不符合法律法规要求的餐饮业项目及时处理,并将处理意见及时通报工商行政管理部门。
第十五条 餐饮业项目污染防治设施建成后,应当在3个月内申请竣工验收。环境保护行政主管部门应当在收到申请之日起15日内完成竣工验收,出具验收意见。
污染防治设施未建成或者污染防治设施未通过竣工验收的,不得营业。
第十六条 餐饮业经营者在经营活动中必须遵守下列规定:
(一)使用天然气、煤气、液化石油气、电等清洁能源,现有餐饮业项目尚未使用清洁能源的,应当在环境保护行政主管部门规定的期限内改用清洁能源;
(二)油烟净化装置和油水分离设施应当根据产品的技术要求定期进行清洁维护保养,保证油烟净化装置、油水分离等设施正常运行,并保存连续6个月的维护保养记录;
(三)安装空调器室外机组、通风和噪声排放装置等设备应当符合相应的规范,符合城市容貌标准和区域环境噪声标准;
(四)经营设施、设备符合国家有关规定,使用节能、节约型设施设备和用品,降低能源与物品消耗,防止景观照明中过度照明等超能耗标准行为,减少使用一次性木筷子等;
(五)直接向环境排放污染物的,应依法申报登记污染物排放情况并缴纳排污费。
第十七条 餐饮业经营者在经营活动中禁止下列行为:
(一)使用一次性不可降解发泡塑料餐(饮)具、不可自然降解塑料袋和含磷洗涤剂;
(二)不经过油烟排气筒或专用烟道无组织排放油烟、经城市雨水管道或污水管道排放油烟;
(三)乱倒乱堆餐厨废弃物,将餐厨废弃物直接排入雨水管道、污水管道、河道、湖泊、水库、沟渠和公共厕所;
(四)将餐厨废弃物交给未办理餐厨废弃物收集、运输服务许可证的单位处理;
(五)在居民住宅区及公共道路上、河道管理范围内及餐饮服务经营场所所在建筑物周边区域进行净菜、洗涤等与提供餐饮业经营有关的污染环境的作业活动。
第十八条 本办法实施前依法设立的餐饮业项目不符合本办法第七条规定的,逐步限期调整、搬迁、改造。
第十九条 环保部门和其他行政管理部门应当加强对餐饮服务经营场所环境保护的执法检查,并向社会公布检查结果。被检查者应当配合检查,如实反映情况,提供与检查内容有关的资料,不得隐瞒、拒绝或者阻挠执法人员检查。
第二十条 对餐饮服务环境污染的举报和投诉,环保部门应当在收到举报或者投诉之日起5个工作日内赴现场检查取证,并及时将处理结果告知举报人或者投诉人。涉及其他相关职能部门处理的事项,及时进行移交处理,并告知举报人或者投诉人。
第二十一条 违反本办法规定的,由环保、工商、卫生、规划、建设、城管、房产、公安、文广新等行政管理部门依照各自职责分别依法查处,并及时通报相关部门。
第二十二条 行政主管部门的工作人员玩忽职守、滥用职权、徇私舞弊的,由其主管部门或行政监察部门进行行政责任追究;构成犯罪的,依法追究刑事责任。
第二十三条 本办法自2011年9月1日起施行。
Partnership - New option for foreign investment in China
Zhiguo Li
A new door to partnership is opened by the Chinese government to the foreign investors under this post-financial turmoil era in order to attract more foreign investment and provide more employment. On November 25, 2009, the State Council of the PRC promulgated the Measures for the Administration on the Establishment of Partnership Business by Foreign Enterprises or Individuals in China adopted at the 77th executive meeting of the State Council on August 19, 2009, which shall come into effect as of March 1, 2010 (“the Foreign Partnership Measures”). The Foreign Partnership Measures is regarded as supplementary to the Partnership Business Law of the People's Republic of China (“the Partnership Law”), article 108 of which provides that the measures for the administration on the establishment of partnership business by foreign enterprises or individuals shall be formulated by the State Council. Therefore the Partnership Law is the basic law for foreign enterprises or individuals (collectively “foreign partners”) to establish the partnership business in China (“foreign partnership”).
The initial effort to formulate this kind of measures with the authorization of the Partnership Law can be tracked to January 2007 when the Ministry of Commerce of the People’s Republic of China (MOC), as requested by the Legislative Affair Office of the State Council, promulgated a draft of the Measures for the Administration on the Foreign Funded Partnership Business (“the Draft”) for public consultation. The Draft mostly reflect the intention of the MOC to remain the approval authority for the foreign partnerships as it does in the setup of the other three types of FIEs, such as equity joint venture, contractual joint venture and wholly foreign owned enterprise (i.e., EJV, CJV and WFOE, collectively FIEs). But the final Foreign Partnership Measures kick the MOC and its local branches (“the MOC local branches”) out from the charging authority with the replacement by the local authorized branch of the State Administration of Industry and Commerce (SAIC local branch), which is unexpected to but welcome by the professionals and entrepreneurs. This article will do analysis on the Foreign Partnership Measures from four perspectives: foreign partnership models, foreign partners’ qualification, thresholds and registration of the foreign partnership, in aiming to describe a clear foreign partnership roadmap for foreign partners.
Foreign Partnership Models
Foreign partners can set up the foreign partnership in China in three models: a. with the other foreign partners; b. with the Chinese individuals, legal persons and the other organizations registered and located in Mainland China; c. through participating the existing domestic partnership.
In the models above, the foreign partners have the option to take the form of general partnership, limited liability partnership or limited partnership stipulated by the Partnership Law, among which the limited liability partnership is only for the professional institutions such as law firms and accounting firms. Comparing with model a and b, model c seems more feasible and time-and-cost saving for the foreign partners. A complete due diligence will be conducted in order to minimize the risk from the operation of the domestic partnership before the participation date of the foreign partners. In consideration of the current administration and nature of the partnerships, lack of credibility and the other elements in China, it will be difficult to get a complete due diligence report satisfied with the foreign partners. Therefore, models a and b are highly recommended. Which model of a or b take needs the consideration and balance of the foreign partners based on their business plan, legal structuring, such as whether foreign partners themselves intend to do the business competing with the foreign partnership and how to exit by transferring the contribution in the partnership, ect., and the thresholds discussed below.
Foreign Partners’ Qualification
The difference in the expression on the partners from overseas and China should be noted. Foreign partners only include foreign enterprises and individuals. The Chinese partners include Chinese individuals, legal persons and the other organizations. There is no unified legal interpretation on the “enterprise”, though mostly it refers to the profitable organizations. This uncertainty may come from the prudency of the legislator of China on the qualifications of foreign partners. Under article 184 of the Opinions of the Supreme People’s Court on Several Issues concerning the Implementation of the General Principles of the Civil Law of the People’s Republic of China for Trial (“the Opinions”), this expression of “enterprise” on the foreign partners allow the SAIC local branch more discretion to judge whether the foreign partner is a qualified “enterprise” or not in accordance with the relevant Chinese laws. In this scenario, the foreign partners need to note that they should not fall into the types of entities prescribed in article 3 of the Partnership Law if they aim to be a general partner, which says that wholly state-funded company, state-owned company, listed company, public-welfare-oriented institution or social organization may not become a general partner.
Regarding the foreign individuals, they must have full capacity for civil conduct in accordance with article 14 of the Partnership Law. The international private law problem will also be involved here. Pursuant to article 180 of the Opinions, the foreign individuals who conduct civil activities in the territory of China, shall be regarded as having full capacity for civil conduct if they have that in accordance with China laws, no matter what their national laws requires for their capacity for civil conduct. Foreign individuals at or above the age of 18 years old are qualified to be the foreign partners if they are not mentally ill.
Thresholds for Foreign Partnership
Some thresholds, such as the approval by the MOC, imposed on the FIEs are lifted for foreign partnership. This means that the foreign partnership and the domestic partnership will be treated with unified threshold in the aspect of approval, which will definitely reduce the criticism from the international community, but may cause more from the domestic public (including those FIEs). But it does not mean that there will be no thresholds review on foreign partnership.
Article 3 of the Foreign Partnership Measures lists the general thresholds for the foreign partnerships. The establishment of foreign partnership shall abide by the Partnership Law and the other relevant laws, regulations and rules, and comply with the industrial policies for foreign investment. These general thresholds need to be analyzed together with the reference to the other relevant laws, regulations, rules and policies.
First, the threshold provided by the Partnership Law is the pre-approval on the business scope. Where the business cope of a foreign partnership contains any item, for example oil distribution, that is subject to approval prior to registration according to laws or regulations, such approval shall be sought in advance and submitted at the time of registration with SAIC local branch. These pre-approvals involve , but not limited to, the Ministry of Land, the Ministry of Transport, the China Securities Regulatory Commission, the China Banking Regulatory Commission and the China Insurance Regulatory Commission, etc., which depends on the business of the foreign partnership.
Second, the Provisions on Guiding the Orientation of Foreign Investment (2002) and the Catalogue for the Guidance of Foreign Investment Industries (revised in 2007) (collectively “foreign investment industrial policies”) set up the industrial threshold for the foreign partnerships, which are the industrial policy basis for the SAIC local branch to review registration application to establish foreign partnership in China. This will obviously increase the working load of the SAIC local branches since they are lack of the experience in this kind of foreign investment industrial policies review. We may also anticipate that there might be different explanation and implementations on the above two documents, which will be the problem faced by those foreign partners who submit the application in the first half year after the Foreign Partnership Measures comes into force on March 1, 2010.
The third threshold is that the verification is required if the project invested by the foreign partners falls into the scope described in the Provisional Measures Governing Verification of Foreign Invested Projects. The charging authority is the National Development and Reform Commission and its local branches, which depending on the amount of the total investment and the nature of the project.
It is necessary to note the forth threshold hidden in the important expression in article 3 of the Foreign Partnership Measures, which put the “rules” as the legal basis for the establishment of foreign partnerships. In the legal system of China, it indicates that the State Council authorizes the ministries or departments under the State Council (“the Ministries”) to issue necessary “rules” applicable to foreign partnerships. It also reflects that the existing valid “rules” issued by the Ministries, including those applicable to the representative offices opened by foreign law firms in China, are still the barrier for the foreign partners to access the local market in China.
The final threshold comes from the commitment of China in its WTO accession. Although the State Council encourages those foreign partners who have advanced technology and management experience to establish foreign partnership in China with the purpose to facilitate the development of the modern service industry, at this stage, the services industries may only limited to those listed in the Schedule of Specific Commitments on Services (Annex 9 of the Protocol on the Accession of the People’s Republic of China) and the openness will not be wider than the commitments therein.
Registration of the Foreign Partnership
In the FIEs regime, all investments by foreign investors need the pre-approvals of the MOC or MOC local branches. In the approval process, the MOC or MOC local branches will review, but not limited to, the content of the application, the article of associations of FIEs and contracts signed by the parties if any. Generally, this approval procedure will take 5 working days to 90 working days depending on the nature and total investment of the project. In this regard, the cancel of this approval for the foreign partnership will significantly escalate the speed of the establishment in the procedural stage and to a great extent reduce the uncertainty from the MOC or MOC local branches.
The Foreign Partnership Measures stipulates that the representative or agent of all the partners shall submit the establishment application only to the SAIC local branch and not the SAIC. The submission shall include, besides the documents required by the Regulations on the Administration of Registration of Partnership Business (revised in 2007, “Partnership Registration Regulation”), the explanation on compliance of the foreign partnership with the foreign investment industrial policies, which will ease the review by the SAIC local branch. In this regard, the review may not be limited to the formality as provided in article 16 of Partnership Registration Regulation. It seems impossible for the SAIC local branch to issue the license to the foreign partnership on the spot. In this scenario, the SAIC local branch shall make a decision on whether to issue the license to the foreign partnership within 20 working days after the date it accepts the complete application.
The Foreign Partnership Measures is the second case for MOC and MOC local branches to lose approval authority in the recent years. The first case is for the representative office opened by most of foreign enterprises in China since 2004. Although the loss of approval authority, the MOC local branches at the same level with the SAIC local branches accepting the application for establishment of foreign partnership shall be advised the registration information (including the establishment, alteration and cancel) of the foreign partnerships by the latter.
Conclusion
For those foreign partners not interested in establishing professional foreign partnerships such as law firms in China, they are now can access the Chinese market with a presence in the option of partnership. The approval procedures involved with the MOC or its local branches as set up for FIEs has been removed. The minimum investment (registered capital) requirement for FIEs has been reduced to RMB30,000 (RMB100,000 for one-person limited liability company) by the Company Law of the People's Republic of China (revised in 2005), the Foreign Partnership Measures leave the minimum investment open to the partners. The foreign partners can contribute with the currency (freely exchanged foreign currency or legally earned RMB), in kind, IPR, land use right, the other properties or labor service (limited to general partners) to the foreign partnerships. All these will minimize the cost for foreign partners to achieve their goal of profit maximization in China. But those enterprises focusing on the investment business, such as the foreign-funded venture capital investment enterprises and foreign-funded investment companies, are excluded from the Foreign Partnership Measures due to lack of experience in administrating this kind of enterprises by the government.