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生命不能承受之重——传道受教与体罚、变相体罚、虐待、伤害行为之辩证/张浠娟

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         生命不能承受之重
           ——传道受教与体罚、变相体罚、虐待、伤害行为之辩证

          张浠娟(福建力华律师事务所)


【关键词】未成年人 体罚 变相体罚 虐待 伤害


传道受教中存在的体罚、变相体罚、虐待、伤害现象

十月份以来,各网站纷纷针对温岭虐童事件及配发照片展开了“虐童行为”与“虐待罪”的讨论。

一谈及教育、学校就会想起希望工程的“大眼睛女孩”,一方面教育倾注了受教人、家庭、社会的希望,另一方面教育中存在的变相体罚、虐待又践踏着这一希望:10月15日,太原市蓝天蒙特梭利幼儿园老师10分钟内连续抽打幼童70个耳光。10月24日,浙江温岭幼儿园老师揪住幼童双耳向上提。10月27日,家长去山东东营海培金色摇篮幼儿园调录像获知幼儿园教师针扎多名幼童。10月28日,苏州网友曝光幼儿园孩子的眼睛和嘴都被不透明胶带封住。

系列报道中,幼儿园的孩子们承受着体罚、变相体罚、虐待,即使是这些行为频繁加著于自己身上,发生在眼前、身边,孩子们直到事件被公开了才在亲人的催问下说出幼儿园的受罚生活。

传道受教对体罚的需求

在进入社会之前未成年人与社会达成一个契约,即如何适应社会以扮演其在社会中自选或委派的角色,作为普适的公平原则未成年人通过幼、小、初、高、大等教育机构完成进入社会之前的训导,从而获得进入社会的资质。此外,作为受教的途径还有家庭、培训机构、社会,这里所讨论的传道受教即包含上述各类情形。

为了完成训导目的,作为其权威的象征对受教者实行体罚确有其存在的必要。徐昕教授在《为什么禁而不止——体罚与规训的法经济学视角》中分析,基于两个悖论,教育实践对体罚存在一定的需求:一是在禁止私人行使人身惩罚的同时,将未成年人规训成符合国家要求的公民这一重任委以私人——家长和老师来承担。二是国家禁止老师体罚学生,但在教育资源有限和家长顾及工作的情形下,老师和家长都很难投入更多精力围着一部分违反纪律、学习跟不上的未成年人,而且诉诸没有体罚为后盾的教育来促使未成年人遵守纪律,更接近于一个乌托邦。(具体内容参见[1])

这就解答了前面所提到的孩子们在幼儿园里不仅承受着变相体罚、虐待,而且默认、接受这种现象发生在身边。不可忽视的另一方面,普通存在的家庭暴力也促使未成年在心理上习得教育机构等传道受教中的此类体罚、变相体罚、虐待、伤害行为模式。

体罚、变相体罚、虐待、伤害行为模式探讨

可以说“受罚”已成为受教者的一种亲身经历,不论是作为受罚者还是作为旁观者。在教育机构中教师对学生实行体罚,一是规训受罚学生,二是以儆效尤。如果体罚能够直接达到规训学生效果的,则验证了体罚这种手段的实用性,反之,如果体罚未能见效,则教师通常加重体罚,延长体罚时间、责打行为升级、上报学校、加重忽视排斥力度、迫使学生退学等等。

如此一来,体罚成为传道受教中的常规手段并逐步替代其他教育方式,而且在目前家庭、社会对体罚在一定程度上的默认,从教育机构内部至外部都对体罚缺少一种有效的监督。因此,在长期实行体罚的过程中,教师在心理上也易于疏于事前查明再行体罚,学校在处分学生时也会存在违反工作要求、操作规程的现象,以致伤害既成事实,甚至酿成悲剧。

例如最高人民法院的案例指导《李某、宋某诉青海某中学人身损害赔偿纠纷案》,2005年11月8日下午,李某参加青海某中学组织的考试,监考老师认定李某作弊。次日上午,青海某中学相关部门作出对李某记过处分的决定,并将处分决定张贴于校园公示栏内,同日李某在家中自缢身亡。二审法院认为,青海某中学在处分李某前既未对李某本人进行调查核实,也未将处分决定报校务会批准。因其工作方法简单草率,违反了青海某中学自行制定的工作要求,且没有按照规定将处分决定及时通知李某家长,使得熟悉了解李某个人情况的家长没有机会及时进行引导和教育,丧失了避免悲剧发生的可能。故青海某中学违反工作程序的处分行为与李某的死亡具有一定的因果关系。

在体罚升级和缺少内外监督的情况下,变相体罚、虐待、暴力伤害等等也就成为不可避免的现象,即使是事后对温岭虐童事件中的教师、幼儿园进行追究处理,也不能有效地预防此类事件,从温岭虐童事件之后相关事件的连续报道中也可知现实如此。

正如法社会学和法律人类学领域内公认的大家——尤根•埃利希与马林诺夫斯基所言,法律存在于人们在社会群体内的常规化行为模式之中,同时也是由这些行为模式组成[2]。人之初的行为模式、德育培养和熏陶始于家庭成于社会,在身体力行的实践中得到进一步完善和矫治,传道受教中的体罚、变相体罚、虐待、伤害行为一旦成为常规化的行为模式,受教者从中不知不觉地接受了这种观念,体罚、变相体罚、虐待、家庭虐待、家庭暴力——“打是亲,骂是爱”的行为模式也就这样一代接着一代传了下去。

施教者实行体罚、变相体罚、虐待的法律责任

未成年人在受到体罚、变相体罚、虐待的过程中,除了健康权、身体权、人身自由权受到侵犯以外,其人格尊严权也不容忽视,虽然“公民的人格尊严不受侵犯”被写入宪法第三十八条,但是未成年人的“人格尊严”在强势的教育权威下仍会受到扭曲。

作为承担主要教育任务的教育机构及教师通常承担哪些责任?杨连专教授在《体罚学生中的法律问题研究》中将体罚学生所承担的法律责任根据情况分为以下三类:(一)民事责任:1、一般性体罚,属于普通过错的,应归为法人侵权,由学校承担责任,体罚学生只不过是一种不当的管理学生方式。2、一般性体罚,属于共同过错的,应由学校与加害人按过错大小分别承担责任,学校承担连带责任。3、一般性体罚,属于混合过错的,应由学校、加害人和受害人按过错大小分别承担责。(二)严重的体罚,构成故意或过失伤害罪的,行为人承担刑事责任,学校承担连带民事责。(三)体罚行为人承担行政责任。(具体内容参见[3])

正因传道受教本身对体罚的需求,纵观《宪法》、《未成年人保护法》、《义务教育法》、《教师法》、《学生伤害事故处理办法》、《刑法》,对于承担主要教育任务的学校和教师,也只明文禁止学校和教师对学生实行体罚,此间存在的虐待行为并不构成《刑法》第二百六十条虐待罪,相关法规中通常表述为“构成犯罪的,依法追究刑事责任”。对于承担部分教育任务的家庭,如果虐待家庭成员的构成《刑法》第二百六十条虐待罪,也就是说,虐待罪仅限于家庭成员之间。

未成年人的教育、保护和发展规划与传道受教的监督自律体系

费先生在《文化论》译序中道出“行远者储粮,谋大者育才”,育才是由家庭、家长、教育机构、教师、社会共同承担的过程,因此,建立并完善教育机构内部的监督自律体系,以及由学生、家长、家庭、社会构成的外部监督体系,通过未成年人保护协会、地方社会团体、未成年人自救自助组织、未成年人心理辅导站等多种形式,以平衡传道受教对体罚的需求与体罚升级的不可预见性,从而实现国家层面上的未成人教育、保护与儿童发展规划。

注释:

麻醉药品管理办法(附英文)

国务院


麻醉药品管理办法(附英文)

1987年11月28日,国务院

第一章 总则
第一条 为严格管理麻醉药品,保证医疗、教学、科研的安全使用,根据《中华人民共和国药品管理法》的规定,制定本办法。
第二条 麻醉药品是指连续使用后易产生身体依赖性、能成瘾癖的药品。
第三条 麻醉药品包括:阿片类、可卡因类、大麻类、合成麻醉药类及卫生部指定的其他易成瘾癖的药品、药用原植物及其制剂。
第四条 国家严格管制麻醉药品原植物的种植和麻醉药品的生产、供应、进出口,非医疗、教学、科研需要一律不得使用麻醉药品。

第二章 麻醉药品的种植和生产
第五条 麻醉药品原植物的种植单位,必须经卫生部会同农牧渔业部、国家医药管理局审查批准,并抄报公安部。
麻醉药品的生产单位,必须经卫生部会同国家医药管理局审查批准。未经批准的任何单位和个人,一律不得从事麻醉药品的生产活动。
第六条 麻醉药品原植物的年度种植计划由卫生部会同农牧渔业部审查批准,麻醉药品的年度生产计划由卫生部会同国家医药管理局审查批准并联合下达执行,种植和生产单位不得擅自改变计划。对成品、半成品、罂粟壳及种子等,种植或生产单位必须有专人负责,严加保管,严禁自行销售和使用。
第七条 麻醉药品的生产,要加强质量管理,产品质量必须符合国家药品标准。
第八条 麻醉药品新品种的研究试制,必须由研制单位编制计划,报经卫生部审定批准后,方可进行。研究试制完毕后按有关新药审批的办法办理,并要严格试制品的保管与使用手续,防止流失。

第三章 麻醉药品的供应
第九条 麻醉药品的供应必须根据医疗、教学和科研的需要;有计划地进行。全国麻醉药品的供应计划由国家医药管理局指定的部门提出,报卫生部、国家医药管理局审查批准后下达执行。
第十条 麻醉药品经营单位的设置由各省、自治区、直辖市卫生行政部门会同医药管理部门提出,报卫生部、国家医药管理局审核批准。经营单位只能按规定限量供应经卫生行政部门批准的使用单位,不得向其他单位和个人供应。
第十一条 药用罂粟壳的供应业务由国家医药管理局及各省、自治区、直辖市的医药管理部门指定的经营单位办理,其他单位一律不准经营。罂粟壳的分配必须根据卫生部和国家医药管理局共同审查批准的计划调拨。罂粟壳可供医疗单位配方使用和由县以上卫生行政部门指定的经营单位凭盖有医疗单位公章的医生处方配方使用,不准零售。药品生产企业为配制中成药所需罂粟壳计划,由所在省、自治区、直辖市医药管理部门审核后,报卫生行政部门核定下达执行。
第十二条 各麻醉药品经营单位必须设置具有相应储藏条件的专用仓库或专柜,并指定专职人员承担麻醉药品的储运和供应工作。

第四章 麻醉药品的运输
第十三条 运输药用阿片时,必须凭卫生部签发的国内运输凭照办理运输手续,原植物的种植单位调给国家医药管理局仓库的药用阿片由发货单位派人押运,由仓库调往药品生产企业的由收货单位派人押运。押运员人数,按照运输部门的规定确定。
运输凭照由卫生部统一印制。
第十四条 运输麻醉药品和罂粟壳,除药用阿片外,生产和供应单位应在运单货物名称栏内明确填写“麻醉药品”,并在发货人记事栏加盖“麻醉药品专用章”,凭此办理运输手续。
第十五条 运输单位承运麻醉药品和罂粟壳,必须加强管理,及时运输,缩短在车站、码头、机场存放时间。铁路运输不得使用敞车,水路运输不得配装仓面,公路运输应当苫盖严密,捆扎牢固。
第十六条 运输途中如有丢失,承运单位必须认真查找,并立即报告当地公安机关和卫生行政部门查处。

第五章 麻醉药品的进出口
第十七条 麻醉药品的进出口业务由对外经济贸易部指定的单位按照国家有关外贸的规定办理,其他部门一律不得办理麻醉药品的进出口业务。麻醉药品进出口的年度计划应当报卫生部审批。
第十八条 因医疗、教学和科学工作需要进口麻醉药品的,应报卫生部审查批准,发给《麻醉药品进口准许证》后,方可申请办理进口手续。
第十九条 出口麻醉药品,应向卫生部提出申请并交验进口国政府主管部门签发的进口准许证,经卫生部审查发给《麻醉药品出口准许证》后,方可办理出口手续。
第二十条 麻醉药品进出口准许证由卫生部统一印制。

第六章 麻醉药品的使用
第二十一条 麻醉药品只限用于医疗、教学和科研需要。设有病床具备进行手术或一定医疗技术条件的医疗单位,可向当地卫生行政部门办理申请手续,经上一级卫生行政部门批准,核定供应级别后,发给“麻醉药品购用印鉴卡”,该单位应按照麻醉药品购用限量的规定,向指定的麻醉药品经营单位购用。
教学、科研单位所用的麻醉药品,由需用单位向当地卫生行政部门的上一级卫生行政部门提出申请,经批准后,向麻醉药品经营单位购用。
限量单位的级别标准由卫生部制定。
第二十二条 麻醉药品使用单位在采购麻醉药品时,须向麻醉药品经营单位填送“麻醉药品申购单”。麻醉药品经营单位在供应时,必须详细核对各项印章及数量。供应数量按照卫生部规定的麻醉药品品种范围及每季购用限量的规定办理。
第二十三条 麻醉药品使用单位采购麻醉药品,除直接到麻醉药品经营单位采购外,也可邮购。但往来单据、证件均须挂号寄发。邮寄麻醉药品时,麻醉药品经营单位应在包裹详情单上加盖“麻醉药品专用章”。并凭盖有“麻醉药品专用章”的发票作为向邮局办理邮寄的证明。
第二十四条 凡麻醉药品管理范围内的各种制剂,必须向麻醉药品经营单位购用。管理范围内没有的制剂或因医疗单位特殊需要的制剂,有麻醉药品使用权的医疗单位经县以上卫生行政部门批准,可以自行配制,其他任何单位不得自行配制。
第二十五条 使用麻醉药品的医务人员必须具有医师以上专业技术职务并经考核能正确使用麻醉药品。
进行计划生育手术的医务人员经考核能正确使用麻醉药品的,在进行手术期间有麻醉药品处方权。
第二十六条 麻醉药品的每张处方注射剂不得超过二日常用量,片剂、酊剂、糖浆剂等不超过三日常用量,连续使用不得超过七天。麻醉药品处方应书写完整,字迹清晰,签写开方医生姓名,配方应严格核对,配方和核对人员均应签名,并建立麻醉药品处方登记册。医务人员不得为自己开处方使用麻醉药品。
第二十七条 经县以上医疗单位诊断确需使用麻醉药品止痛的危重病人,可由县以上卫生行政部门指定的医疗单位凭医疗诊断书和户籍簿核发《麻醉药品专用卡》,患者凭专用卡到指定医疗单位按规定开方配药。由于持《麻醉药品专用卡》的病人用药增加,医疗单位每季度供应限量不足时,经所在地卫生行政部门的上一级卫生行政部门批准后,可增加供应量。
第二十八条 医疗单位应加强对麻醉药品的管理。禁止非法使用、储存、转让或借用麻醉药品。医疗单位要有专人负责,专柜加锁,专用帐册,专用处方,专册登记。处方保存三年备查。医疗单位对违反规定,滥用麻醉药品者有权拒绝发药,并及时向当地卫生行政部门报告。
第二十九条 因抢救病人急需麻醉药品的,有关医疗单位和麻醉药品经营单位应立即迅速办理,但只限于该病例一次性使用剂量,手续不完备的,可事后补办。

第七章 罚则
第三十条 凡违反本办法的规定,有下列行为之一者,可由当地卫生行政部门没 收全部麻醉药品和非法收入,并视其情节轻重给予非法所得的金额五至十倍的罚款,停业整顿,吊销《药品生产企业许可证》、《药品经营企业许可证》、《制剂许可证》的处罚:
(一)擅自生产麻醉药品或者改变生产计划,增加麻醉药品品种的;
(二)擅自经营麻醉药品和罂粟壳的;
(三)向未经批准的单位或者个人供应麻醉药品或者超限量供应的;
(四)擅自配制和出售麻醉药品制剂的;
(五)未经批准擅自进口、出口麻醉药品的;
(六)擅自安排麻醉药品新药临床,不经批准就投产的。
第三十一条 对利用工作方便,为他人开具不符合规定的处方,或者为自己开具处方,骗取、滥用麻醉药品的直接责任人员,由其所在单位给予行政处分。
第三十二条 违反本办法规定,擅自种植罂粟的,或者非法吸食麻醉药品的,由公安机关依照治安管理处罚条例或有关的规定给予处罚。
第三十三条 违反本办法的规定,制造、运输、贩卖麻醉药品和罂粟壳,构成犯罪的,由司法机关依法追究其刑事责任。
第三十四条 当事人对行政处罚不服的,可在接到处罚通知之日起十五日内,向作出处理的机关的上一级机关申请复议。上一级机关应在接到申请之日起十日内作出答复。对答复不服的,可在接到答复之日起十五日内,向人民法院起诉。对处罚决定不服而逾期又不起诉的,原处理机关可向人民法院申请强制执行。

第八章 附则
第三十五条 军队、武装警察部队卫生医疗单位麻醉药品的供应、使用,由卫生部会同中国人民解放军总后勤部、中国人民武装警察部队后勤部根据本办法,制定具体管理办法
第三十六条 兽用麻醉药品的供应、使用,由卫生部、农牧渔业部根据本办法,制定具体管理办法。
第三十七条 本办法的实施细则由卫生部制定。
第三十八条 本办法自发布之日起施行。1978年9月13日国务院颁发的《麻醉药品管理条例》同时废止。

MEASURES FOR THE CONTROL OF NARCOTIC DRUGS

Important Notice: (注意事项)
英文本源自中华人民共和国务院法制局编译, 中国法制出版社出版的《中华人民
共和国涉外法规汇编》(1991年7月版).
当发生歧意时, 应以法律法规颁布单位发布的中文原文为准.
This English document is coming from the "LAWS AND REGULATIONS OF THE
PEOPLE'S REPUBLIC OF CHINA GOVERNING FOREIGN-RELATED MATTERS" (1991.7)
which is compiled by the Brueau of Legislative Affairs of the State
Council of the People's Republic of China, and is published by the China
Legal System Publishing House.
In case of discrepancy, the original version in Chinese shall prevail.

Whole Document (法规全文)
MEASURES FOR THE CONTROL OF NARCOTIC DRUGS
(Promulgated by the State Council of the People's Republic of
China on November 28, 1987)

Chapter I General Provisions
Article 1
These Measures are formulated in accordance with the Medicine
Administration Law of the People's Republic of China, for the purpose of
tightening control over narcotic drugs so as to ensure their safe use in
medical treatment units, medical colleges and medical research
institutions.
Article 2
Narcotic drugs refer to those drugs that may cause dependence and
addiction after continuous administration.
Article 3
Narcotic drugs include opium, cocaine, marijuana, synthetic anaesthetic
drugs and those defined by the Ministry of Public Health as addict-forming
drugs, anaesthetic raw herbs and the products made from them.
Article 4
The State shall strictly supervise and control the cultivation of the
mother plants of narcotics and the production, supply, export and import
of narcotic drugs. Narcotic drugs shall not be used except for the purpose
of medical treatment, teaching and research when necessary.

Chapter II The Cultivation of Mother Plants of Narcotics and the Production of Narcotic Drugs
Article 5
The units that cultivate mother plants of narcotics must be examined and
approved jointly by the Ministry of Public Health, the Ministry of
Agriculture, Animal Husbandry and Fishery and the State Administration for
Medicine. A copy of the report shall be sent to the Ministry of Public
Security.
The units that produce narcotic drugs must be examined and approved
jointly by the Ministry of Public Health and the State Administration for
Medicine. Without approval, no unit or individual shall be allowed to
produce narcotic drugs.
Article 6
The annual cultivation plan for mother plants of narcotics shall be
examined and approved jointly by the Ministry of Public Health and the
Ministry of Agriculture, Animal Husbandry and Fishery. The annual
production plan of narcotic drugs shall be examined and approved jointly
by the Ministry of Public Health and the State Administration for
Medicine. The cultivation units and the production units shall not change
the plans without authorization. The cultivation unit and the production
unit must assign a person or persons with the special responsibility for
the storage of the finished products, semi-finished products, poppy
capsules and poppy seeds. Sale or use of these things without
authorization shall be strictly prohibited.
Article 7
Narcotic drugs must be brought under strict quality control. The quality
of the products must meet the standards set for medicines by the State.
Article 8
Before the development of any new kind of narcotic drugs, the research
unit must first of all draw up a plan and submit it to the Ministry of
Public Health for examination and approval. After the new drug is
developed, the research and trial production units must go through the
formalities for the approval of such new drugs. The storage and use of the
trial products must follow strict procedures so as to prevent their loss.

Chapter III The Supply of Narcotic Drugs
Article 9
Narcotic drugs shall be provided in a planned way according to the demand
of medical treatment units, medical colleges and scientific research
institutions. A national supply plan of narcotic drugs shall be drawn by
a department appointed by the State Administration for Medicine and
submitted to the Ministry of Public Health and the State Administration
for Medicine for examination and approval before it is issued for
implementation.
Article 10
The plan for the setting up of a trading unit of narcotic drugs shall be
put forward jointly by the administrative department of health and
medicine administrative department in each province, autonomous region, or
municipality directly under the Central Government and shall be examined
and approved by the Ministry of Public Health and the State Administration
for Medicine. The trading units shall provide narcotic drugs only to those
consumer units approved by the administrative department of health and
within the prescribed quota. No supply for any other unit or person is
permitted.
Article 11
Poppy capsules used for medical purposes shall be supplied by the trading
units appointed by the State Administration for Medicine and medicine
department in each province, autonomous region, or municipality directly
under the Central Government. No other unit shall be allowed to engage in
such business. Poppy capsules must be allotted to the consumer units in
accordance with the plan examined and approved jointly by the Ministry of
Public Health and the State Administration for Medicine. Poppy capsules
shall be supplied to the medical treatment units for clinical use and to
the trading units designated by the administrative departments of health
at or above the county level for clinical application endorsed with an
office seal of their respective medical treatment units. No retail sale of
poppy capsules is allowed. The pharmaceutical factories that need poppy
capsules in the production of ready made Chinese medicine must submit
plans to the medicine administrative department in their province,
autonomous region, or municipality directly under the Central Government
for examination and then to the administrative department of health for
approval before production.
Article 12
A trading unit of narcotic drugs must have a special storehouse or
counter(s) with good storage conditions and assign a person or persons
with special responsibility for the storage, transportation and supply of
narcotic drugs.

Chapter IV Transportation of Narcotic Drugs
Article 13
A permit for domestic consignment issued by the Ministry of Public Health
is needed when going through shipment formalities for transporting
medicinal opium. Shipment of medicinal opium from the cultivation unit to
the storehouse of the State Administration for Medicine shall be escorted
by the people sent by the consignor unit. Shipment of medicinal opium from
the storehouse to the production enterprises shall be escorted by the
people sent by consignee unit. The number of escorts shall be decided in
accordance with the regulations of the transportation department.
Permit for domestic transportation of such drugs shall be printed solely
by the Ministry of Public Health.
Article 14
When consigning narcotic drugs or poppy capsules (not including medicinal
opium), the production unit or the supply unit must put down clearly the
words of Narcotic Drug in the blank for the name of goods on the shipping
document and a seal for consignment of Narcotic Drug must be stamped in
the space left for the consignor.
Article 15
The freighter unit must tighten control over the shipment of narcotic
drugs and poppy capsules by dispatching the consignment promptly and
shortening its storage time at the station, on the dock or at the airport.
They must not be transported in open wagons on railways and, if by ship,
no loading on hold surface is allowed and, if by truck, they must be
securely fastened up and safely protected.
Article 16
In the event that any of the narcotic drugs or poppy capsules are found
missing in the course of transportation, the freighter-unit must report
the case promptly to the local public security organ and the
administrative department of health for investigation.

Chapter V Import and Export of Narcotic Drugs
Article 17
The import and export of narcotic drugs shall be handled by the units
appointed by the Ministry of Foreign Economic Relations and Trade in
accordance with State regulations concerning foreign trade.
No other units shall be allowed to engage in the business. The annual plan
for import and export of narcotic drugs shall be subject to examination
and approval by the Ministry of Public Health.
Article 18
The import of narcotic drugs needed in medical treatment units, medical
colleges of or medical science research institutions must be verified and
approved by the Ministry of Public Health. Only after an Import License
for Narcotic Drugs is granted can these units apply to go through import
formalities.
Article 19
The export of narcotic drugs must be verified and approved by the Ministry
of Public Health. An application and an import license which is a
prerequisite to going through import formalities for narcotic drugs issued
by the competent government department of the importing country must be
presented before the Ministry of Public Health issues an Export License
for Narcotic Drugs.
Article 20
Import and export licenses for narcotic drugs shall be printed exclusively
by the Ministry of Public Health.

Chapter VI The Use of Narcotic Drugs
Article 21
Narcotic drugs shall only be used for medical treatment, in teaching at
medical colleges and in medical science research. Any medical treatment
unit with medical wards and with surgical or other necessary medical
treatment facilities may file an application to the local administrative
department of health. Upon approval by the administrative department of
health at a higher level, and after the level of supply is verified, a
Purchase Card for Narcotic Drugs shall be issued. The aforesaid unit may
purchase the needed narcotic drugs from the designated trading units
according to the fixed quota. When the medical colleges or scientific
research institutions are in need of narcotic drugs, they shall file an
application to the administrative department of health at a higher level
and, upon approval, may purchase these drugs from the trading units of
narcotic drugs. The Ministry of Public Health is the authority to make out
the grading standard of rations.
Article 22
Narcotic consuming unit must fill out an application form for when
purchasing, narcotic drugs and the supplying unit must check the various
seals and the number of seals stamped on the form before supplying them
with the kind of drugs on quarterly ration as stipulated in the
regulations set by the Ministry of Public Health.
Article 23
The unit in need of narcotic drugs can either purchase them directly from
the trading units or by mail order. In the latter case, however, the
shipping documents and certificates must be sent out by registered mail.
When sending the narcotic drugs by post, the sender-trading unit is
required to stamp a Seal for Narcotic Drugs on the parcel form and to
present to the post office the invoice with a Seal for Narcotic Drugs
stamped on.
Article 24
Preparations that fall under the category of narcotic drugs must be
purchased from the trading units of narcotic drugs. In case that they are
not available or special preparations are needed by the medical treatment
units, the authorized consuming medical units may prepare them by
themselves with approval by the administrative department of health at or
above the county level. No other unit shall be allowed to prepare any form
of anaesthetic.
Article 25
The medical worker who prescribes any anaesthetics for the patient must be
a qualified physician or a surgeon, who is tested to have been able to use
such drugs properly. The surgeon at the induced abortion ward who is
tested to have been able to use such drugs properly may have the right to
prescribe anaesthetics for the person to be operated on.
Article 26
Dosage for injection in each prescription must not exceed two days of
daily dose, as for the tablet, tincture, syrup, the dosage must not exceed
three days of daily dose. Administration of narcotic must not exceed a
period of seven days running. Prescription of narcotic drugs must be fully
and clearly stated with signature of the physician or surgeon on. When
preparing a narcotic drug, the pharmacist and the checker are required to
sign their names and keep the prescription of the narcotic drug on file.
No medical worker is allowed to prescribe any narcotic drug for
him/herself.
Article 27
In the case of a patient in serious conditions who is diagnosed by a
hospital at or above county level to be in need of narcotic drugs as a
pain killer, the hospital appointed by the administrative department of
health at or above the county level may issue the patient with a Special
Purchasing Card for Narcotic on the basis of the Prescription and by
checking his permanent residence booklet, and the patient may take this to
the appointed medical treatment unit to have the drug prepared. If the
patient holding a Special Purchasing Card for Narcotic is in need of a
larger dose and the seasonal ration of the medical treatment unit fails to
meet the demand, additional amount of narcotic shall be made available
only with the approval by the administrative department of health at a
higher level.
Article 28
Medical treatment units are required to tighten control over narcotic
drugs. Any illegal use, storage, transfer or borrowing of narcotic drugs
is prohibited. Narcotic drugs must be put under the charge of a person
specially appointed for the purpose and kept in a separate place under
lock. The distribution and prescriptions of narcotic drugs must be kept in
record separately from those of other medicine.
The prescriptions must be kept on file for a period of three years. The
medical treatment unit shall have the right to refuse dispensing of drugs
to those who abuse them in violation of relevant rules and regulations and
shall report the case to the local administrative department of health
promptly.
Article 29
In the event of an emergency case which is in need of narcotic drugs, the
medical treatment unit so involved and the trading unit of narcotic drugs
are required to supply a dose of narcotic promptly for the case only, and
the necessary formalities shall be done after the event.

Chapter VII Penalty Provisions
Article 30
Any violation of these Measures shall be subject to penalty by the local
administrative department of health according to the seriousness of the
case. The penalty shall cover confiscation of all the narcotic drugs and
the illegal earnings, a fine ranging from 5-10 times the illegal profits,
closing down of the business or revocation of "License for Pharmaceutical
Production Enterprise", "License for Pharmaceutical Business Enterprise"
or License for Medicaments"
(1) those who, without authorization, are engaged in the production of
narcotic drugs or have changed the production plan and made additional
kinds of narcotic drugs;
(2) those who are engaged in unauthorized trading business of narcotic
drugs and poppy capsules;
(3) those who supply or oversupply narcotics to any unit or person that
has not been granted the permission to use the stuff;
(4) those who prepare and sell any form of narcotic drugs without
authorization;
(5) those who are engaged in unauthorized import or export of narcotic
drugs;
(6) those who apply any new kind of narcotic drugs to patients clinically
or have produced any new kind of narcotic drugs without authorization.
Article 31
Those who have taken advantage of their professional work by prescribing
narcotics to other persons without complying with the rules or by
prescribing narcotics for themselves, and those who are directly
responsible for cheating to obtain or abusing the stuff, shall be given
disciplinary sanctions by the authorities of their units.
Article 32
Those who, in violation of these Measures, cultivate poppy without
authorization or take in narcotic drugs illegally shall be punished by a
public security organ in accordance with the Regulations on Administrative
Penalties for Public Security or other related rules.
Article 33
With respect to any one who produces, transports or sells narcotics or
poppy capsules, if the circumstances are serious enough to constitute a
crime, he shall be prosecuted for criminal liability by the judicial
organs according to law.
Article 34
A party, who is dissatisfied with the decision on an administrative
sanction may, within 15 days of receiving the notification on the
sanction, make a request for reconsideration to the authorities at the
level next higher, which shall make a reply within 10 days of receipt of
the appeal. If he is dissatisfied with the decision on reconsideration, he
may, within 15 days of receiving the reconsideration decision, bring a
suit before a people's court. If, upon the expiration of this period, the
party has neither complied with the sanction nor has brought a suit before
a people's court, the authorities that impose the sanction shall apply to
the people's court for compulsory enforcement.

Chapter VIII Supplementary Provisions
Article 35
The specific administration rules for the supply and use of narcotic drugs
in the health and medical treatment units of the Chinese People's
Liberation Army and the Chinese People's Armed Police Force shall be
formulated jointly by the Ministry of Public Health, the General Logistics
Department of the Chinese People's Liberation Army and the Logistics
Department of the Chinese People's Armed Police Force in accordance with
these Measures.
Article 36
The specific administration rules for the supply and use of veterinary
narcotic drugs shall be formulated jointly by the Ministry of Public
Health and the Ministry of Agriculture, Animal Husbandry and Fishery in
accordance with these Measures.
Article 37
The rules for the implementation of these Measures shall be formulated by
the Ministry of Public Health.
Article 38
These Measures shall go into effect as of the date of promulgation. The
Provisions for the Administration of Narcotic Drugs, promulgated by the
State Council of the People's Republic of China on September 13, 1978,
shall become null and void on the same day.


关于印发《营口市人民政府政务督查工作暂行办法》的通知

辽宁省营口市人民政府


关于印发《营口市人民政府政务督查工作暂行办法》的通知


各市(县)、区人民政府,市政府各部门、各派出机构、各直属单位:
  现将《营口市人民政府政务督查工作暂行办法》印发给你们,请认真遵照执行。
 

  
   二〇一一年七月七日

营口市人民政府政务督查工作暂行办法


第一章 总则


  第一条 为建立健全政务督查工作的长效机制,使全市政务督查工作更加规范化、制度化、科学化,以适应政府职能转变和改进工作作风的需要,保证市政府重大决策和重要工作部署的贯彻落实,根据国务院、省政府政务督查工作的有关规定,结合我市政务督查工作的实际,特制定本办法。
  第二条 市政府政务督查工作由市长负总责,分管副市长负专责,市政府办公室主管,市政府督察室组织实施。市政府督察室是市政府政务督查工作的专门机构,代表市政府履行督查职责,不代替市(县)区政府和市政府职能部门组织开展工作和处理问题。
  第三条 市政府政务督查的对象是市(县)区政府,市政府各部门、直属机构、派出机构,中省直驻营单位等贯彻落实国务院和省、市政府重大决策和重要工作部署情况。


第二章 工作原则


  第四条 依法行政原则。依据法律、法规和规章规定开展政务督查工作。凡政府决策、工作部署、会议议定事项和领导同志交办等督查事项,按照下级服从上级的组织原则,有交必办。各市(县)区政府,市政府各部门及各有关单位必须认真做好承办工作,确保政令畅通。
  第五条 归口办理原则。凡市政府重大事项、重要工作部署和市政府领导同志的重要批示等督查事项,实行归口办理。市政府督察室根据督查事项的具体要求,及时向市(县)区政府,市政府各部门及有关单位交办督查任务,并对落实情况跟踪督查,对办理结果有选择的进行复查,确保督查事项件件落到实处。
  第六条 分级负责原则。各市(县)区政府、市政府各部门及各有关单位政务督查工作机构负责抓好本级政府、本部门和本单位的督查工作,并认真办理上级交办的督查任务。
  第七条 实事求是原则。各级政务督查人员应坚持实事求是,注重调查研究,全面准确地了解和反映情况,客观、公正地处理问题。讲真话,报实情,为领导正确决策提供有参考价值的意见和建议。
  第八条 讲求实效原则。按照“交必办、办必果、果必报”的要求,经常性地开展检查,实行跟踪督办,使政务督查工作做到事事有着落,件件有回音。同时,根据实际情况,急事急办,特事特办,注重实效。
  第九条 严格保密原则。对督查中的涉密事项,要严格遵守保密制度的各项规定,不得向无关人员泄露。对因泄露秘密造成不良影响的,泄密者要承担相应的责任和纪律处分。对领导同志的批示内容只能在督办通知中打印显示,不得向承办单位转送领导同志批示原件或复印件;要严格限定发送范围,做到发送登记;所有督查事项及相关资料,要视同正式公文管理,严格执行保密制度。


第三章 主要任务


  第十条 政务督查工作的主要任务是紧紧围绕市委、市政府中心工作,突出工作重点,加强督促检查,狠抓工作落实,及时发现问题,适时提出建议,服务领导决策。政务督查工作的重点:
  (一)国务院和省、市政府重大决策和重要工作部署的贯彻落实情况。
  (二)市《政府工作报告》分解任务和民生工程的落实情况。
  (三)市政府全体会议、常务会议、办公会议、业务会议、专题会议等会议决定事项的落实情况。
  (四)上级党政机关转交的批示件、督办件和市委、市政府主要领导批示交办的事项。
  (五)市政府主要领导下基层检查工作、开展调研时提出要求处理的事项。
  (六)市政府领导同志交办的其他事项。
  (七)省、市人大代表议案、建议和政协提案办理事项。


第四章 工作程序


  第十一条 分解立项。对市《政府工作报告》中确定的任务目标,由市政府督察室按照市政府办公室《关于认真落实政府工作报告各项任务的通知》要求,确定督查方式和督查时段,立项督查。对市政府全体会议、常务会议、办公会议、业务会议、专题会议等会议确定事项,由市政府督察室负责分解立项,规定完成时限,明确相关市(县)区政府,市政府各部门及有关单位办理落实和反馈。领导批示和交办事项,按领导要求立项督查。
  第十二条 分流办理。
  (一)自办。对不宜转交有关单位办理或领导指定直接办理的事项,由市政府督察室直接办理,或由市政府督察室牵头,商有关部门和单位办理。
  (二)交办。对确定由市(县)区政府、市政府各部门及有关单位落实的事项,各单位按照职责分工认真负责地抓好落实。对市政府领导和上级机关交办的督查事项,由市政府督察室发出《督办通知》,交承办单位限期办理。承办单位要严格履行职责,按时完成交办任务。
  (三)协办。对任务交叉或涉及几个单位的督查事项,市政府督察室要明确主办单位和协办单位,由主办单位牵头,商协办单位办理。协办单位应积极配合,认真办理,主动提供书面材料等。办理结果由主办单位负责汇总报告。
  第十三条 督促检查。督办通知发出后,市政府督察室根据督查事项的轻重缓急情况,采取电话催办、现场督办、会议督办、书面催办、上门催办等方式,督促检查办理情况。对重要事项重点督办,对紧急事项及时督办。
  第十四条 办结报告。督查事项有了结果后,承办单位应及时向市政府督察室写出办结报告。办结报告应一事一文,采用专题报告形式,由承办单位主要领导审核,以承办单位的名义书面上报。办结报告应做到:文书格式规范,事实清楚,结论准确,处理妥当,任务落实,问题得到解决。不符合要求的办结报告应重新查报。
  第十五条 立卷归档。对督促检查中形成的各种资料,做到及时立卷归档,以备查询。


第五章 工作要求


  第十六条 健全组织体系。市(县)区政府、市政府各部门及各有关单位应加强对政务督查工作的领导。各市(县)区政府、市政府各部门及各有关单位主要领导是政务督查工作的第一责任人,同时,应明确一名分管领导负责政务督查工作。各市(县)区政府办公室要设立必要的机构从事督查工作,并保证开展督查工作必须的办公、通讯、交通及必要的专项经费等工作条件。政府各部门及各有关单位要指定办公室或其他内部科室及必要的人员承办具体督查事项,以保证督查工作正常有序地进行。
  第十七条 加强队伍建设。市(县)区政府、市政府各部门及各有关单位要加强督查力量,稳定督查队伍,选配具有较高综合分析能力、组织协调能力、调查研究能力、文字表达能力的同志从事督查工作。督查机构设置与工作人员编制应与加大督促检查力度、推动决策部署落实的实际需要相适应。为保持督查工作的连续性,可以选配政治素质高、协调能力强、公道正派、敢于反映和善于处理问题的同志担任非领导职务的专职督查员。要从政治上、工作上、生活上关心督查工作人员,主动为其参加会议、阅读文件、学习培训提供便利条件。
  第十八条 严肃工作纪律。政务督查工作要与各市(县)区政府、市政府各部门及各有关单位年度绩效考核相挂钩,凡被市政府督察室通报表扬和批评的,均纳入年度绩效考核加分或减分。对抓落实不力,办理督查事项敷衍塞责、推诿扯皮、久拖不办或反馈情况不及时,特别是内容严重失实,情节恶劣,造成不良影响的,要追究主管领导和有关人员的责任。


第六章 附 则


  第十九条 本办法自下发之日起施行,原《营口市人民政府政务督查工作暂行规定》(营政发〔2005〕6号)同时废止。
  第二十条 本办法由营口市人民政府督察室负责解释。