四、推进交通治理现代化
IV. Modernization of Transport Governance文章源自英文巴士-https://www.en84.com/10301.html
文章源自英文巴士-https://www.en84.com/10301.html
中国是世界上最大的发展中国家，交通运输体量庞大、情况复杂且处于快速发展当中，交通治理难度大。中国立足本国国情，借鉴国际经验，大力推进交通治理现代化，通过改革创新释放技术和市场活力、提升治理效能，促进了交通高质量发展。文章源自英文巴士-https://www.en84.com/10301.html
文章源自英文巴士-https://www.en84.com/10301.html
China is the largest developing country in the world. The complexity and rapid development of its sizable transport sector have created difficulties in managing the industry. Based on national conditions and drawing on international experience, China has devoted serious effort to modernizing its transport governance. Through reform and innovation, the country has unleashed the vitality of technology and market, increased efficiency and facilitated the high-quality development of the industry.文章源自英文巴士-https://www.en84.com/10301.html
文章源自英文巴士-https://www.en84.com/10301.html
（一）推进交通治理体系改革文章源自英文巴士-https://www.en84.com/10301.html
文章源自英文巴士-https://www.en84.com/10301.html
1. Reforming the Transport Governance System文章源自英文巴士-https://www.en84.com/10301.html
文章源自英文巴士-https://www.en84.com/10301.html
立足当前、着眼长远，积极推进综合交通体制机制改革，不断完善法律法规，统一开放、竞争有序的交通运输市场基本形成，适应新时代国家发展的交通运输治理体系逐步健全。
Basing itself on the present while focusing on long-term development, China has reformed its comprehensive transport management and improved related laws and regulations. At present, a unified, open, competitive and orderly transport market is in place, and a transport governance system that meets the needs of the country’s development in the new era has been steadily improved.
综合交通运输管理体制机制不断完善。以深化供给侧结构性改革为主线，以提升行业治理能力为重点，持续深化交通运输体制机制改革。2013年形成由交通运输部管理国家铁路局、中国民用航空局、国家邮政局的大部门管理体制架构，交通运输大部门制主体组织架构基本建立。深入推进中国铁路总公司、中国邮政集团公司的公司制改革工作，两家公司分别更名为中国国家铁路集团有限公司、中国邮政集团有限公司，建立健全现代法人治理结构和中国特色现代国有企业制度。省级综合交通运输体制改革加快推进，大部分省份基本建立综合交通运输管理体制或运行协调机制。组建国家铁路局、中国国家铁路集团有限公司，实现铁路政企分开。民航体制机制改革持续深化，机场公安体制、运输价格、民航业投资准入机制、空管系统体制机制等改革有序推进。邮政体制改革有序推进，邮政改革配套措施不断完善。交通运输综合行政执法改革稳步推进，整合执法队伍，理顺职能配置，减少执法层级，权责统一、权威高效、监管有力、服务优质的交通运输综合行政执法体制逐步形成。综合交通运输发展规划协调机制初步建立，铁路、公路、水运、民航、邮政等专项规划之间的衔接平衡不断加强。通过改革，综合交通运输发展的体制机制进一步优化，各种运输方式进一步融合，交通运输发展内生动力进一步增强，行业现代化治理水平进一步提升。
Upgrading comprehensive management. With the focus on advancing supply-side structural reform and improving transport governance, China has furthered reform of the management institutions and mechanisms. As part of the “large government departments” reform in 2013 to optimize administrative functions, a basic institutional framework was formed under the Ministry of Transport, which brought the National Railway Administration, Civil Aviation Administration of China and State Post Bureau under its management. The country has advanced corporate reform of the China Railway Corporation and the China Post Group Corporation. The two companies, restructured into China State Railway Group Co., Ltd and China Post Group Co., Ltd, have established a modern corporate governance structure and a modern state-owned enterprise system with Chinese characteristics. Reform has been accelerated at the provincial level, and most provinces have begun to put in place comprehensive transport management institutions or operational coordination mechanisms.
As National Railway Administration and China State Railway Group Co., Ltd were set up, separation of government administration from the management of enterprises was achieved in the railway sector. Reform of the civil aviation institutions and mechanisms for airport public security, pricing, investment access, and air traffic control is proceeding in a well-planned manner. Reform of the postal service has been proceeding steadily, with improved supporting measures for postal reform.
China has steadily promoted reform of administrative law enforcement by reorganizing and streamlining law enforcement teams and their functions. A comprehensive administrative law enforcement system that is authoritative and efficient, balances powers with responsibilities, and features effective regulation and high-quality service is now in place. The country has established a basic mechanism for comprehensive transport planning and coordination, which helps the connection and balanced development of railways, highways, waterways, civil aviation and postal services.
Thanks to these reforms, China has further modernized its capacity for transport governance by optimizing the institutions and mechanisms for comprehensive development, integrating different modes of transport, and boosting driving forces from within the industry.
交通运输法治政府部门建设持续深化。贯彻落实习近平法治思想，以“法治政府部门”建设工程为载体，把法治贯穿交通运输规划、建设、运营、管理和安全生产全过程各方面，为加快建设交通强国提供坚实保障。依法行政制度基本确立，行业立法、执法监督、行政复议与应诉、法治宣传教育和普法等工作机制逐步健全。加快推进铁路、公路、水运、民航、邮政等行业立法，综合交通运输法规体系已基本建成。聚焦国家重大战略实施和行业发展改革领域，制定和修订铁路法、公路法、海上交通安全法、港口法、航道法、民用航空法、邮政法等行业龙头法。出台和制修订水上水下活动通航安全管理规定、交通运输标准化管理办法等行业急需的规章，稳步开展规章规范性文件清理。
Developing law-based government departments for transport. Implementing the Xi Jinping Thought on the Rule of Law in developing law-based government departments, China has exercised the rule of law in all aspects of transport, including planning, construction, operation, management and workplace safety, providing a solid guarantee for building China’s strength in transport. A system for law-based government administration has taken shape, and the working mechanisms for legislation, supervision over law enforcement, administrative review and response to lawsuits, and public education on the law and the rule of law have gradually improved. The government has stepped up the pace to introduce legislation on railways, highways, waterways, civil aviation and postal services, and as a result a broad framework of laws and regulations is now in place.
Focusing on major national strategies and areas relevant to the industry, China has formulated and revised key laws and regulations on railways, highways, maritime traffic safety, ports, waterways, civil aviation, and postal services. China has also promulgated and revised urgently needed provisions and measures for ensuring safe navigation when overwater and underwater activities take place, and for standardization in the transport industry, and has progressively overhauled normative documents.
深化“放管服”改革优化营商环境。坚持问题导向，加快转变政府职能，深化“放管服”改革，持续优化营商环境。逐步放宽市场准入门槛，持续清理交通运输领域各类不合理和非必要罚款及检查，建立涉企收费目录清单制度。深入落实交通运输领域各项减税降费政策，降低物流税费成本。强化事中事后监管，取消中介服务等行政审批事项，推进商事制度改革。推行“双随机、一公开”监管工作，运用大数据、云计算、物联网等信息技术，推动跨省大件运输等并联许可系统全国联网。加快构建以信用为核心的新型市场监管机制。推进新业态协同监管，线上线下一体化监管模式进一步创新，市场环境更加公平有序。优化行政审批服务方式，推广交通运输政务服务“一网通办”，企业群众办事“只进一扇门”“最多跑一次”服务，办事效率显著提升。交通运输“放管服”改革，推动了优化营商环境向纵深发展，激发了交通发展活力，提高了政府服务效能，促进了交通运输行业健康发展。
Advancing reforms to improve the business environment. China has remained problem-oriented, accelerated the transformation of government functions, furthered reforms to streamline administration, delegate power, improve regulation and upgrade services, and continued to improve the business environment. It has gradually relaxed restrictions on market access in the transport sector, removed unreasonable and unnecessary fines and inspections, and established catalogues of fees charged to enterprises. Tax and fee reduction policies have been implemented to lower logistics costs. The government has strengthened in-process and follow-up oversight, cleared intermediary services from the list of items of administrative examination and approval, and furthered reform in the business sector.
Oversight conducted through the random selection of both inspectors and inspection targets and the prompt release of results has been implemented. China has made use of information technologies such as big data, cloud computing and internet of things to promote the nationwide parallel licensing system for inter-provincial heavy cargo. It has also accelerated the establishment of a new market supervision mechanism based on credit, coordinated the regulation of new business forms, and created innovative and integrated online and offline regulation models to make the market environment fairer and more orderly.
China has improved administrative approval services regarding transport, and enabled access to government services via a single website to make it easier for people to get their problems solved by one single department and with one-stop service, thus significantly improving the efficiency of public services.
Reforms designed to streamline administration, delegate power, improve regulation, and upgrade services have optimized the business environment, stimulated the vitality of the transport sector, raised the efficiency of government services, and promoted the healthy development of the industry.
（二）推进交通运输绿色发展
2. Pursuing Green Development
树立和践行绿水青山就是金山银山的理念，交通运输生态文明制度体系日益完善，节能降碳取得实效，环境友好程度不断增加。
Acting on the understanding that lucid waters and lush mountains are invaluable assets, China has improved the system for promoting eco-civilization in the transport sector, achieved real results in energy conservation and carbon reduction, and increased environmental friendliness.
全面推进节能减排和低碳发展。坚定不移推进节能减排，努力建设低碳交通，走出一条能耗排放做“减法”、经济发展做“加法”的新路子。严格实施能源消费总量和强度双控制度，着力提升交通运输综合效能，全国铁路电气化比例达到71.9%，新能源公交车超过40万辆，新能源货车超过43万辆，天然气运营车辆超过18万辆，液化天然气（LNG）动力船舶建成290余艘，机场新能源车辆设备占比约14%，飞机辅助动力装置（APU）替代设施全面使用，邮政快递车辆中新能源和清洁能源车辆的保有量及在重点区域的使用比例稳步提升。全国942处高速公路服务区（停车区）内建成运营充电桩超过7400个，港口岸电设施建成5800多套，覆盖泊位7200余个，沿江沿海主要港口集装箱码头全面完成“油改电”。绿色交通省（城市）、绿色公路、绿色港口等示范工程，年节能量超过63万吨标准煤。通过中央车购税资金，支持建设综合客运枢纽、货运枢纽、疏港铁路，统筹推进公铁联运、海铁联运等多式联运发展，推进运输结构调整。
Comprehensive energy conservation, emissions reduction and low-carbon development. China has worked hard to conserve energy, reduce emissions, and develop low-carbon transport to boost economic development. It has strictly implemented a system that controls both the total amount and intensity of energy consumption to improve the overall efficiency of transport. The national railway electrification rate has reached 71.9 percent. There are now more than 400,000 buses and 430,000 trucks using new energy, 180,000 natural gas vehicles, and 290 liquefied natural gas (LNG) ships. About 14 percent of airport vehicles and facilities are run on new energy sources, substitute facilities for aircraft auxiliary power units (APUs) are in full use, and the numbers of postal vehicles run on new and clean energy and those that are in service in key regions are steadily increasing. More than 7,400 charging piles have been built and operated in 942 expressway service areas across the country, more than 5,800 sets of shore power facilities have been built at ports, covering over 7,200 berths, and container terminals at major ports along the Yangtze and coastlines have switched from oil to electricity for power. The annual energy saved by green transport provinces and cities, green highways, green ports and other demonstration projects has exceeded 630,000 tonnes of coal equivalent. The central government has used vehicle purchase tax funds to support the construction of comprehensive passenger terminals, freight hubs, and port railways, and coordinated the development of road-rail, sea-rail and other multimodal forms to restructure the transport network.
强化资源集约节约利用。牢固树立为国家长远发展负责、为子孙后代负责的理念，着力推动交通资源利用方式由粗放型向集约型、节约型转变。结合国土空间规划编制和三条控制线划定落实，统筹铁路、公路、水运、民航、邮政等交通运输各领域融合发展，推动铁路、公路、水路、空域等通道资源集约利用，提高线位资源利用效率。因地制宜采用低路基、以桥（隧）代路等，加强公路、铁路沿线土地资源保护和综合利用，减少对周边环境的影响。加强航道建设的生态保护和绿色建养，推进航道疏浚土综合利用，严格港口岸线使用审批管理与监督，提高岸线使用效率，探索建立岸线资源有偿使用制度。推动废旧路面、沥青、废旧轮胎、建筑废料等材料资源化利用。高度重视和推进快递包装的绿色化、减量化、可循环，大力推进可循环中转袋全面替代一次性塑料编织袋，电子面单使用率达98%。
Strengthening the intensive and economical use of resources. In taking responsibility for the country’s long-term development and for future generations, the Chinese government is endeavoring to transform the extensive use of transport resources to an approach that is intensive and economical. By implementing national planning for land use, drawing red lines to protect ecosystems and permanent basic cropland, and to restrict unlimited urban development, China has promoted the integrated intensive and efficient use of railways, highways, waterways, civil aviation, postal services and associated resources along these passages of transport.
China has strengthened the protection and comprehensive utilization of land resources along highways and railways and reduced the impact on the surrounding environment by building low embankments or building bridges and tunnels instead of roads. It has reinforced eco-environmental protection and green development and maintenance of waterways, promoted the beneficial use of dredged sediments from waterways, strengthened the administration, supervision and efficient use of port shorelines, and explored systems for paid use of shoreline resources.
China has promoted the recycling of waste pavement, asphalt, used tires, construction scrap and other materials. It has also attached great importance to the green treatment, reduction and recycling of delivery packaging, and promoted the replacement of disposable plastic woven bags with recyclable transit packaging, with the utilization rate of electronic waybills reaching 98 percent.
强化大气与水污染防治。坚决打好交通运输领域污染防治攻坚战，用最严格的制度、最严密的法治治理环境污染。在沿海和长江干线等水域设立船舶大气污染物排放控制区，按照国际公约要求对进入中国水域的国际航行船舶实施船用燃油硫含量限制措施，推动船舶使用清洁能源和加装尾气污染治理装备，建立船用低硫燃油供应保障和联合监管机制。执行船舶水污染物排放控制国家强制性标准，推动港口船舶含油污水、化学品洗舱水、生活污水和垃圾等接收处置设施建设，开展港口粉尘污染控制。在全国沿海实施“碧海行动”计划，打捞存在污染环境风险和影响海上交通运输安全的沉船沉物。加快老旧和高能耗、高排放营运车辆、施工机械治理和淘汰更新，推进实施机动车排放检测与强制维护制度（I/M制度）。中央财政采取“以奖代补”方式支持京津冀及周边地区、汾渭平原淘汰国Ⅲ及以下排放标准营运柴油货车。全面开展运输结构调整三年行动，2012年至2019年全国机动车污染物排放量下降65.2%。
Strengthening the prevention and control of atmospheric and water pollution. China uses the strictest systems and laws to control environmental pollution from transport. It has set up the Domestic Emission Control Areas (DECAs) for Atmospheric Pollution from Vessels along coastlines and the main streams of the Yangtze and other major rivers, and implemented measures to limit the sulfur content of fuel oil used by international vessels entering Chinese waters in accordance with international conventions. It has promoted the use of clean energy and installation of exhaust gas cleaning equipment on vessels, and established a mechanism for ensuring the supply and joint supervision of low-sulfur fuel oil.
The country has implemented the national mandatory standards for water pollutant discharge from vessels, built receiving and treatment facilities for oily wastewater, chemical tank-cleaning wastewater, sanitary sewage and garbage from vessels in ports, and carried out dust pollution control at ports. It has implemented the Blue Sea Action* plan along the coast to salvage sunken ships and objects that are at risk of polluting the oceans and affecting the safety of maritime transport.
(*The Blue Sea Action is a public welfare program approved by the State Council as a major measure to promote eco-civilization and related national strategies, and to build green and safe transport. Since 2014, the transport rescue and salvage departments have carried out the action plan for six consecutive years, salvaging a total of 79 sunken ships.)
China has also accelerated the management, phase-out and renewal of old and high-energy consuming, high-emission vehicles and construction machinery, and introduced an emission inspection and mandatory maintenance program for motor vehicles. By replacing subsidies with incentives, the central government has helped the Beijing-Tianjin-Hebei Region and its surrounding areas, and the Fenhe-Weihe River Plain, to phase out commercial diesel trucks at or below China III emission standards. A three-year action plan to readjust the transport structure has been carried out across the country. From 2012 to 2019, motor vehicle pollutant emissions decreased by 65.2 percent nationwide.
加大生态保护与修复力度。严守生态保护红线，严格落实生态保护和修复制度。交通基础设施建设全面实行“避让—保护—修复”模式，推进生态选线选址，强化生态环保设计，避让耕地、林地、湿地等具有重要生态功能的国土空间。在铁路、公路、航道沿江沿线开展绿化行动，提升生态功能和景观品质。铁路、公路建设工程注重动物通道建设，青藏铁路建设的动物通道有效保障了藏羚羊的顺利迁徙及其他高原动物的自由活动。港口码头建设和航道整治注重减少对水生态和水生生物的影响，建设过鱼通道，促进鱼类洄游。组织实施公路港口生态修复总面积超过5000万平方米。推进长江非法码头、非法采砂整治，截至2019年底，完成1361座非法码头整改，改善了生态环境条件，更好保障了长江防洪、供水和航运安全。
Intensifying eco-environmental protection and restoration. China has strictly enforced the red lines for protecting the ecosystems and has put in place a system for protecting and restoring ecosystems. In building transport infrastructure, it has adopted a model of “avoidance, protection and restoration”, and promoted eco-friendly route planning and site selection and design. Particular efforts have been made to avoid farmland, forestland, wetland and other types of territorial space with key eco-environmental functions.
China has carried out afforestation programs along railways, highways and waterways to improve eco-environmental functions and landscape quality. In railway and highway construction projects it makes provision for wildlife corridors. The wildlife corridors built on the Qinghai-Tibet Railway have guaranteed the safe migration of Tibetan antelopes and the movement of other plateau animals. In the construction of ports and the renovation of waterways, China has focused on reducing impacts on aquatic ecology and life, building fishways and facilitating fish migration. It has implemented more than 50 million square meters of eco-environmental restoration along highways and ports.
The country has also addressed the problems of illegal docks and sand mining along the Yangtze River. By the end of 2019, it had closed or rectified 1,361 illegal docks, improving the eco-environment and ensuring flood control, water supply and navigational safety along the river.
（三）加强安全防控和应急保障能力建设
3. Strengthening Safety Management and Emergency Response
坚持人民至上、生命至上，不断提升交通运输业应对突发公共事件的能力，特别是突发重大公共卫生事件的能力，加强安全治理和应急保障能力建设，统筹发展和安全，全力推进建设更高水平平安交通，为经济社会发展和群众出行提供安全运输保障。
Upholding the sanctity of human life, China has improved the capacity of the transport industry to deal with public emergencies and in particular major public health emergencies, strengthened safety management and emergency response, and coordinated development and safety, so as to provide safe transport to the public and support economic and social development.
交通安全防控能力显著提升。坚持预防为主、综合施策，深化和完善交通运输平安体系，持续完善安全生产风险管控和隐患排查治理双重预防控制机制，下大力气减少重特大交通运输安全事故，牢牢守住交通安全生产底线。2012年以来，未发生重大铁路交通事故，2019年铁路运输事故死亡人数和10亿吨公里死亡率与2012年相比分别下降46.1%和53.8%。普通公路较大、重特大道路交通事故起数连续下降，发生较大以上等级事故和死亡人数与2012年相比分别下降55.9%和60%。2019年，未发生重大等级水上交通事故，较大等级以上事故和死亡人数与2012年相比分别下降68.5%和69.4%。民航实现运输航空持续安全飞行112个月、8068万小时的安全新纪录。
Traffic safety management has significantly improved. Putting prevention first and adopting a comprehensive approach, China has further enhanced the system for ensuring safe transport, and improved the mechanism for controlling workplace risks and removing hidden dangers, with the goal of preventing serious and major traffic accidents and ensuring workplace safety.
No major railway accidents have occurred since 2012. In 2019, railway accident fatalities had dropped by 46.1 percent compared with 2012, the death rate per billion tonne-km by 53.8 percent; the number of serious and major traffic accidents on ordinary roads had lowered by 55.9 percent, and the number of fatalities by 60 percent. In water traffic, there were no serious accidents in 2019, and the number of serious accidents and deaths both decreased by 68.5 percent and 69.4 percent respectively compared with 2012. Civil aviation has achieved a new safety record of almost 81 million hours of continuous safe flight in 112 months.
交通应急保障能力显著提升。加强交通应急保障能力建设，及时防范化解交通重大安全风险，有效应对处置各类灾害事故。实施高铁安全防护工程，推进人防、物防、技防“三位一体”安全保障体系建设，集中开展高铁沿线环境综合整治，消除高铁沿线环境安全隐患6.4万处，深入推进普速铁路安全环境整治。实施乡道及以上公路安全保障工程和安全生命防护工程，累计实施88.9万公里，改造危桥4.7万座，车辆运输车治理取得决定性成效。加强海上搜救和重大海上溢油应急处置，建立政府领导、统一指挥、属地为主、专群结合、就近就便、快速高效的海上搜救工作格局，配备70余艘专业救助船舶、120多艘打捞船舶、20余架专业救助航空器，建立20余支应急救助队，基本建成以专业救捞力量、军队和国家公务力量、社会力量等为主要力量的海上搜救队伍。2012年至2019年，全国组织协调海上搜救行动1.6万次，派出搜救船舶7.2万艘次、飞机2780架次，成功救助遇险船舶1.1万艘、遇险人员12.2万人，搜救成功率达96.2%。
Emergency response has markedly improved. China has strengthened emergency response capacity, prevented and defused major safety risks in a timely manner, and effectively responded to disasters and accidents of all kinds. It has carried out projects to secure safety of high-speed railways, built a security system combining manpower, equipment and technology, and improved the security conditions along high-speed railway lines, removing 64,000 potential risks from the routes. Efforts have also been made to improve the safety of standard rail lines. The country has carried out safety and security projects covering 889,000 km of roads at or above the township level, renovated 47,000 unsafe bridges, and effectively disciplined the operation of transport vehicles.
China has strengthened maritime rescue and reinforced emergency response to major offshore oil spills. It has established a fast and efficient approach to maritime search and rescue that follows unified government leadership with the main responsibility on local authorities, and enlists help from both professional forces and the public in line with the principle of proximity and convenience. China is now equipped with more than 70 professional rescue vessels, more than 120 salvage vessels, more than 20 specialized rescue aircraft, and more than 20 emergency rescue teams. It has built a maritime search and rescue capability composed of professional rescue and salvage forces, the armed forces, government forces and social forces. From 2012 to 2019, the government organized 16,000 maritime search and rescue operations, dispatching 72,000 vessels and 2,780 aircraft, and rescued 11,000 vessels and 122,000 people in distress, with a success rate of 96.2 percent.
应对突发公共事件处置能力显著提升。科学高效应对各类突发公共事件，健全工作体系，提升应急能力。新冠肺炎疫情发生后，中国果断做出“一断三不断”部署，适时推出铁路“七快速”，公路“三不一优先”，水运“四优先”，民航客运“五个一”、货运“运贸对接”以及邮政“绿色通道”等政策措施，一方面全力阻断病毒通过交通工具传播，另一方面保障全国各地应急物资运输和人民生活需求，为打赢疫情防控人民战争、总体战、阻击战提供了有力支撑。
The capacity to deal with public emergencies has distinctly improved. China has enhanced its emergency response systems and capabilities, and has responded rationally and efficiently to various public emergencies. After Covid-19 struck, the Chinese government made resolute decisions to block the transmission of the virus and ensure the continuity of the transport network, the channels for emergency transport, and the transport of goods and materials essential for work and daily life. It introduced a series of timely policies and measures:
– ensuring the rapid handling and delivery of emergency supplies by rail;
– prioritizing and expediting free road access for emergency transport vehicles;
– giving priority to emergency transport waterway vessels in passing through locks, being piloted, anchoring and docking;
– allowing each Chinese airline to operate only one route per country with no more than one flight per week;
– matching supply and demand between air transport enterprises and international trade and foreign-funded enterprises; and
– opening fast postal channels.
These measures stopped any spread of the virus by means of transport and ensured the availability of emergency supplies and daily necessities, providing strong support for the all-out war against the epidemic.
