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江西省九江市人民政府办公厅


九江市人民政府办公厅关于印发《九江市城建项目竣工验收及移交管养暂行规定》的通知

九府厅发〔2011〕21号


各县（市、区）人民政府，庐山管理局，九江经济技术开发区，云居山—柘林湖风景名胜区管委会，市政府各部门，市直及驻

市有关单位：　　

《九江市城建项目竣工验收及移交管养暂行规定》已经2011年4月6日第51次市政府常务会议审议通过，现印发给你们，请认真遵照执行。





二〇一一年五月二十六日　　



九江市城建项目竣工验收及移交管养暂行规定



第一章 总则

第一条　为规范城建项目竣工验收及移交管养行为，明确参建单位和接管养单位等各方的权利与义务，保证城建项目竣工验收及移交管养工作的顺利进行，根据《中华人民共和国建筑法》《中华人民共和国合同法》《建筑工程质量管理条例》《房屋建筑和市政基础设施工程竣工验收备案管理办法》及《建设工程质量保证金管理暂行办法》等法律、法规，结合本市实际情况，制定本规定。

第二条　本规定中的城建项目是指按照城市规划新建、扩建、改建的城市道路、广场、桥梁、隧道、排水（含水利工程）、照明、园林绿化、公共建筑等市政园林基础设施和房屋建筑工程及配套设施。

第三条　本市城市规划区范围内新建、扩建、改建的城建项目（特许经营项目除外）的竣工验收及移交管理工作适用本规定。

第二章 竣工验收

第四条 建设单位收到施工单位的建设工程竣工报告后，应当组织勘察、设计、施工、监理、管养等有关单位进行竣工验收。建设工程竣工验收应当具备下列条件：

（一）完成工程设计和施工合同约定的各项内容；

（二）工程档案经市城建档案馆预验收并出具初验意见；

（三）施工单位提出经项目总监签署的《工程竣工报告》；

（四）监理单位提出的《工程质量评估报告》；

（五）勘察、设计单位提出的《质量检查报告》；

（六）有完整的技术档案和施工管理资料；

（七）有工程使用的主要材料、建筑构配件和设备的进场试验报告；

（八）有符合验收规范的质量检测和功能性试验报告；

（九）民用建筑工程室内环境质量检测报告；

（十）民用建筑节能分部工程验收合格；

（十一）建设单位按有关规定取得规划、消防、环保等有关部门出具的认可文件或准许使用文件；

（十二）有施工单位签署的工程质量保修书；

（十三）建设行政主管部门及其委托的工程质量监督机构等有关部门责令整改的问题已全部按有关规定整改完毕；

（十四）水利工程按相关规定验收合格；

（十五）交通管理设施须经公安交通部门验收合格；

建设工程经验收合格并备案后，方可交付使用。

第五条 建设单位应当严格按照国家有关档案管理的规定，及时收集、整理建设项目各环节的文件资料，建立、健全建设项目档案，并在建设工程竣工验收后一个月内，将收集整理的建设项目档案一式两份，分别向市城建档案管和管养单位移交。档案应包括以下内容:

（一）准备阶段文件

1．发改委前期工作联系函

2．发改委关于列入年度计划的批复

3．项目建议书、可行性研究报告

4．建设用地批准书（或划拨用地文件）

5．国有土地使用证（复印件）

6．拆迁许可证、协议、方案

7．建设项目选址意见书

8．建设用地规划许可证

9．建设工程规划许可证（施工通知书复印件）

10．关于建筑工程规划设计条件的通知（复印件）

11．关于建筑方案的批复（复印件）

12．施工图设计文件审查报告、审查合格证书、抗震设防专项监管表

13．公安消防设计审核意见或公安消防设计备案抽查认可文件

14．环保、白蚁防治、水保等批准文件

15．建设工程施工许可证

16．中标通知书

17．勘察、设计、施工、监理委托合同

18．勘察、设计、施工、监理、房地产开发单位资质证书（复印件）

19．工程质量、安全监督手续

20．建设、施工管理机构、监理机构及负责人名单

21．工程地质勘察报告

（二）监理文件

1．监理规划及实施细则

2．工程开工审批表、工程开工报告

3．监理月报

4．质量事故报告及处理意见

5．不合格项目通知

6．工程延期报告及审批

7．工程竣工监理工作总结

8．质量评估报告

（三）施工技术文件

1．建筑与结构

（1）施工现场质量管理检查记录

（2）施工组织设计（方案）审批表

（3）开工报告

（4）竣工报告

（5）图纸会审、洽商记录

（6）设计变更记录

（7）技术核定单、技术交底记录

（8）工程定位高程测量记录、复核记录

（9）基槽开挖测量记录

（10）原材料合格证书和复试报告、汇总表：A钢材；B水泥；C砖（砌块）；D外加剂；E装饰材料，F防水材料；G砂、石；H预制构件、预搅拌混凝土。

（11）施工试验报告、检测报告：A砼试块；B砂浆试块；C钢筋焊接及焊条（剂）合格证；D土壤。

（12）隐蔽工程检查记录

（13）施工记录：A桩基施工；B地基验槽；C地基处理；D地基钎探（附图）；E人工挖孔灌注桩施工验收；F机械成孔灌注桩施工检查；G砼工程施工记录；H通风（烟）道、垃圾道检查；I预应力筋张拉；J钢、木结构施工。

（14）地基基础、主体结构及建（构）筑物功能性试验报告。

（15）桩基检测报告

（16）屋面（地面）淋水、蓄水试验记录

（17）垂直度、标高、全高测量记录

（18）沉降观测记录

（19）工程质量事故调查处理资料

（20）检验批质量验收记录表

（21）分项工程质量验收记录

（22）分部（子分部）工程质量验收记录

（23）工程质量控制强制性条文检查记录

2. 给排水与采暖

（1）图纸会审、设计变更、洽商记录、技术核定单、技术交底记录

（2）材料、配件合格证及检验报告：A管材及配件；B绝热材料；C卫生洁具；D锅炉及压力容器；E仪表；F安全阀、减压阀。

（3）管道、设备强度、严密性试验记录及功能检验：A灌（满）水；B强度严密性；C通水；D吹（冲）洗（脱脂）；E通球；F阀门；G消防、燃气管道压力

（4）隐蔽验收记录

（5）施工记录

（6）检验批质量验收记录表

（7）分项工程质量验收记录

（8）分部（子分部）工程质量验收记录

（9）工程质量控制强制性条文检查记录

3. 建筑电气

（1）图纸会审、设计变更、洽商记录、技术核定单、技术交底记录

（2）材料、配件合格证及检验报告、安装技术文件：A配电柜（箱）、控制柜；B电动机、电加热器、低压开关；C照明灯具、开关、插座、风扇；D电线、电缆；E导管、电缆桥架和线槽；F镀锌制品、钢制灯柱、砼电杆。

（3）设备调试记录及功能检验：A电气设备安全检查及试运行；B照明通电；C大型灯具牢固性试验。

（4）接地、绝缘电阻测试记录

（5）隐蔽验收记录

（6）施工记录

（7）检验批质量验收记录表

（8）分项工程质量验收记录

（9）分部（子分部）工程质量验收记录

（10）工程质量控制强制性条文检查记录

（四）竣工图

1．建筑施工图

2．结构施工图

3．给排水施工图

4．电气安装施工图

（五）竣工验收文件

l．工程概况表

2．工程竣工总结

3．单位工程质量竣工验收记录

4．单位工程质量控制资料核查记录

5．单位工程安全和功能检验资料核查及主要功能抽查记录

6．单位工程观感质量检查记录

7．工程竣工验收报告

8．安全监督报告；防雷检测报告

9．公安消防竣工验收或公安消防竣工验收消防备案抽查认可文件、环保验收认可文件

10．建设项目竣工规划验收合格证

11．竣工验收备案表

12．工程质量保修书

13．住宅质量保证书及住宅使用说明书

（六）法律、法规、规章规定的其它需要移交的档案文件

第六条 工程实行质量保证金和质量保修制度。

工程质量保证金是指建设单位与施工单位在施工合同中约定，从应付的工程款中预留，用以保证施工单位在缺陷责任期内对建设工程出现的缺陷进行维修的资金。

缺陷责任期自竣工验收合格之日起计算，缺陷责任期除易耗易损件为一年外，其余均为两年。缺陷责任期内，由施工单位原 因造成的缺陷，施工单位应负责维修，并承担鉴定及维修费用。如施工单位不维修也不承担费用，建设单位可按合同约定扣除工程质量保证金，并由施工单位承担违约责任。

施工单位在向建设单位提交工程竣工验收报告时，应当向建设单位出具质量保修书。质量保修书中应当明确建设工程的保修范围，保修期限和保修责任等。

第七条 在正常使用条件下，建设工程的最低保修期限为：

（一）基础设施工程、房屋建筑的地基基础工程和主体结构工程，为设计文件规定的该工程的合理使用年限；

（二）屋面防水工程、有防水要求的卫生间、房间和外墙面的防渗漏，为5年；

（三）供热与供冷系统，为2个采暖期、供冷期；

（四）电气管线、给排水管道、设备安装和装修工程，为2年。

其他项目的保修期限由发包方与承包方约定。

建设工程的保修期，自竣工验收合格之日起计算。

第八条 建设工程在保修范围和保修期限内发生质量问题的，施工单位应当履行保修义务，并对造成的损失承担赔偿责任。

第三章 移交管理

第九条 建设单位负责本单位实施的已验收合格的城建项目的移交管养工作，并按下列规定向相关部门移交管养工作：

（一）环卫设施及市容保洁向项目所在地辖区政府管委会移交；

（二）交通管理设施向市交警支队移交；

（三）市本级政府投资的城市道路、广场、桥梁、隧道、照明、排水设施向市市政公司移交；

（四）市本级政府投资的园林绿化向市园林处移交；

（五）市本级政府投资的河道向原管理单位或政府指定的单位移交；

（六）市本级政府投资的公共建筑向公共建筑使用单位移交；

（七）辖区政府（管委会）投资的城建项目（含工业园区内）由辖区政府（管委会）自行确定管养单位。

第十条 城建项目必须具备以下条件方可移交管养：

（一）项目已按设计完成建设和通过竣工验收并完成整改，不存在安全隐患，具备运行和养护、维修条件；

（二）主体工程及配套附属设施应当满足使用要求。

（三）已签署工程质量保修书。

（四）已向市城建档案管移交建设项目档案。

第十一条　建成项目竣工验收合格后移交管养单位的，按照以下程序执行：

（一）提交移交管养报告。项目通过竣工验收并已对存在问题整改完毕，建设单位参照竣工验收的相关规定组织有关单位对整改事项进行复查，建设工程质量监督部门会同接收单位对复查情况进行监督。复查合格后，由建设单位向管养单位提交移交报告；

（二）移交项目档案资料。建设单位应在移交管养报告提交后30日内，将本规定第五条所列建设项目档案中的相关资料移送管养单位，并与管养单位共同签署《建设项目档案交接清单》；

（三）签署《建成项目交接确认书》。建设单位应当在建设项目档案资料完成移交的同时与管养单位签署《建成工程项目交接确认书》。自双方签署交接确认书之日起，管养单位正式接收管养，但质量保修期间发生的质量问题仍由建设单位负责。

第十二条　项目移交后，在质量保修期内，建设单位仍须按建设工程质量管理相关规定及合同约定承担质量保修责任。

管养单位协助建设单位对施工单位在项目质保期内的质量保修工作进行监督，发现重大质量问题的，应及时通知建设单位，建设单位应在接到通知5个工作日内组织各相关单位鉴定。确属质量问题的，由施工单位负责在规定的期限内进行整改，建设单位负责监督管理。

第十三条　施工单位应当在项目质量保修期届满15日前对项目进行自检，完成对存在问题的整改并向管养单位提交项目保修期间的保修情况报告。

管养单位接到保修情况报告后应当在7个工作日内对项目进行现场复检，复检发现的问题由建设单位负责督促施工单位进行整改。

复检合格后，由建设单位在10个工作日内与设计、监理、施工及管养单位共同签署《建设项目工程保修期满存在问题整改复检鉴定表》，并提交给项目管养单位后，建设单位才可解除项目质保期内的责任。

第十四条　建设单位和管养单位在项目移交过程中产生争议的，双方应当先行协商解决。协商不成的，由建设单位根据争议问题所涉及的行政职能，报相应的行政主管部门或市政府协调处理。

第十五条　申请移交的建成项目不具备第十条规定的移交条件的，管养单位可拒绝接收，其维护管理仍由建设单位负责。

如有特殊原因，确需移交尚不完全具备移交条件的建成项目，由建设单位提出完善移交条件的方案并经管养单位认可后，方可按程序办理移交手续。

第四章 罚则

第十六条 违反本规定，建设单位有下列行为之一的，由建设行政主管部门委托的建设工程质量监督机构，责令改正，并处工程合同价款百分之二以上百分之四以下的罚款；造成损失的，依法承担赔偿责任；

（一）未组织竣工验收，擅自交付使用的；

（二）验收不合格，擅自交付使用的；

（三）对不合格的建设工程按照合格工程验收的。

第十七条 违反本规定，建设工程竣工验收后，建设单位未向市城建档案馆和其他有关部门移交建设项目档案的，由市城建档案馆提请建设行政主管部门，依照《建设工程质量监督管理条例》的规定，责令改正，并处1万元以上10万元以下的罚款。

第十八条 违反本规定，施工单位不履行保修义务或者拖延履行保修义务的，由建设行政主管部门委托的建设工程质量监督机构，责令改正，并处10万元以上20万元以下的罚款，施工单位对在保修期内因质量缺陷造成的损失承担赔偿责任。

第十九条 其他违反本办法规定行为的行政处罚，由建设行政主管部门或其他有关部门依照法定职权决定。

第五章 附则

第二十条 本规定自印发之日起实施。