上海市设定临时性行政许可程序规定
（2004年12月13日上海市人民政府令第38号发布）

第一条　（目的与依据）

为了规范设定临时性行政许可的程序，确保行政许可设定的合法、适当，根据《中华人民共和国行政许可法》（以下简称《行政许可法》）和其他有关法律、行政法规的规定，结合本市实际，制定本规定。

第二条　（定义）

本规定所称的临时性行政许可，是指根据《行政许可法》第十五条的规定，尚未制定法律、法规，确需立即采用行政许可的形式实施行政管理，由市政府规章设定的实施期限为一年的行政许可。

本规定所称的起草单位，是指按照《规章制定程序条例》和《上海市人民政府规章制定程序规定》的规定，负责起草市政府规章草案的市政府工作部门、区县政府或者其他组织。

第三条　（设定行政许可的论证）

市政府规章拟设定临时性行政许可的，起草单位应当就拟设定行政许可的合法性、必要性、可行性等进行充分论证。

合法性应当符合下列条件：

（一）属于《行政许可法》第十二条规定的可以设定行政许可的事项；

（二）尚未制定法律、行政法规和地方性法规；

（三）不属于《行政许可法》第十五条第二款规定的情形；

（四）规定了拟设定行政许可的实施机关、条件、程序、期限。

必要性应当论证下列内容：

（一）拟设定行政许可领域现有行政管理手段的现状与不足；

（二）确需立即实施行政许可的理由；

（三）尚不能按照《行政许可法》第十三条规定执行的理由。

可行性应当论证下列内容：

（一）实施该行政许可对经济和社会可能产生的影响；

（二）实施该行政许可对公民、法人或者其他组织权利义务的影响；

（三）该行政许可是否具有可操作性；

（四）实施该行政许可的成本效益评估。

第四条　（听取意见的方式）

市政府规章拟设定临时性行政许可的，起草单位应当听取意见。听取意见应当采取下列方式：

（一）公开征询公众意见；

（二）论证会；

（三）书面征询相关行政机关意见。

根据实际情况，听取意见还可以采取下列方式：

（一）听证会；

（二）委托有关机构作成本效益评估；

（三）起草单位认为必要的其他方式。

第五条　（听取意见的方案）

起草单位在听取意见之前，应当制定听取意见的方案，明确听取意见的重点论证内容、拟采取的方式、时间安排等。

听取意见方案在实施前，起草单位应当征求市政府法制部门的意见。

第六条　（公开征询公众意见）

市政府规章拟设定临时性行政许可的，起草单位应当在起草过程中，通过"中国上海"政府网站、本单位在因特网上的网站，将拟设定临时性行政许可的有关事项向社会公告，公开征询公民、法人或者其他组织的意见。

除前款规定的方式外，起草单位还可以通过本单位办公场所政务公开的公告栏以及本市其他公开媒体，向社会公告。

公告内容应当包括拟设定临时性行政许可的事项名称、实施机关、条件、程序、期限，以及对拟设定临时性行政许可合法性、必要性、可行性的说明。同时应当明确公众发表意见的途径、截止期限，并公开联系方式。

公民、法人或者其他组织可以通过信函、传真、电子邮件等方式将意见反馈起草单位。听取公众意见的期限自公告之日起不得少于20日。

起草单位应当对公众意见进行汇总、整理和分析。在规章通过后，向公众反馈采纳意见的有关情况，并说明理由。

第七条　（论证会）

市政府规章拟设定临时性行政许可的，起草单位应当召开论证会。论证会可以邀请下列人员和组织参加：

（一）专业技术、行政管理和法律等方面的专家，以及其他相关领域的专家；

（二）与拟设定的行政许可相关的公民、法人或者其他组织的代表；

（三）人大代表、政协委员；

（四）相关行业组织的代表。

召开论证会，起草单位应当提前5日将拟设定临时性行政许可的有关议题、材料送交有关人员和组织。起草单位应当就论证会制作会议记录。

第八条　（书面征询相关行政机关意见）

市政府规章拟设定临时性行政许可的，起草单位应当以书面形式征询相关行政机关的意见。被征询意见的行政机关应当在规定的时间内提出书面意见，加盖公章后回复起草单位；逾期不回复的，视为无意见。

起草单位与相关行政机关有不同意见的，应当充分协商；经协商仍不能取得一致意见的，由起草单位报送市政府法制部门协调；经协调意见仍不一致的，由市政府法制部门报市政府领导决定。

第九条　（听证会的组织）

市政府规章拟设定临时性行政许可，直接涉及公民、法人或者其他组织切身利益，或者有关机关、组织、个人有重大意见分歧的，起草单位应当举行听证会。

除前款规定情形外，起草单位认为有必要的，也可以举行听证会。

听证会应当由起草单位的法制机构负责组织，相关业务机构配合、参与。

起草单位应当制定听证方案，明确听证主持人、听证议题、议程、时间、场所、听证参加人和旁听人员的报名规则及截止日期等内容，并将听证方案在举行听证会的30日前，通过"中国上海"政府网站予以公告。

听证方案在公告前，起草单位应当征求市政府法制部门的意见。市政府法制部门应当给予必要的协助，并列席听证会。

第十条　（听证参加人的确定）

公民、法人或者其他组织可以报名参加听证会，报名人数较多时，起草单位应当按照公开、公平、公正的原则确定听证参加人。

起草单位可以根据实际需要，邀请有关组织和个人参加听证会。

起草单位应当制作听证参加人名单，注明听证参加人的姓名、职业或者所代表的组织，以及所持基本观点。

第十一条　（旁听人员的确定）

公民、法人或者其他组织可以报名旁听听证会，报名人数超过旁听席的，起草单位应当按照报名的先后顺序或者按照公正原则随机抽取的方式，确定听证旁听人员。

第十二条　（听证会的举行）

起草单位应当在举行听证会5日前，书面通知听证参加人，并通过"中国上海"政府网站公布听证参加人的姓名、职业或者所代表的组织。

听证会上，听证参加人有权陈述意见、提供材料，就有关问题进行辩论，并可以向起草单位提问。起草单位的代表应当作出解释和说明理由。

第十三条　（听证会记录）

起草单位应当对听证会进行录音，并制作听证会记录，如实记录发言人的主要观点和理由。

听证参加人认为听证会记录与本人的发言不一致的，有权要求起草单位予以更正。

听证会记录应当允许公众查阅。

第十四条　（委托开展成本效益评估）

起草单位可以委托有关专业机构或者社会组织，用科学的方法，对拟设定的临时性行政许可进行成本效益分析，评估其对经济、社会和公民、法人、其他组织可能产生的影响。受委托的机构或者组织应当按要求向起草单位提交评估报告。

第十五条　（听取意见情况报告）

起草单位依照本规定听取意见后，应当制作听取意见情况报告，对市政府规章是否设定临时性行政许可提出意见。

起草单位制作听取意见情况报告，应当根据听取社会公众意见汇总情况、论证会意见、有关行政机关的书面意见、听证会记录，以及成本效益评估报告等情况作出，并将不同意见分类列明。

第十六条　（说明理由）

起草单位向市政府上报拟设定临时性行政许可的市政府规章草案时，应当同时提交听取意见情况报告，说明设定该临时性行政许可的合法性、必要性、可行性，对经济和社会可能产生的影响以及听取和采纳公众意见等情况。

第十七条　（审查）

市政府法制部门在对起草单位提交的市政府规章草案进行审查时，应当对草案中拟设定临时性行政许可的合法性、必要性、可行性和程序正当性一并进行审查，提出审查意见：

（一）市政府规章拟设定的临时性行政许可符合法律规定、确有设定必要且具有可行性的，按照国家和本市的有关规章制定程序办理；

（二）起草单位没有按规定程序听取意见或者说明理由的，可以将草案退回起草单位，要求其履行规定的程序；

（三）市政府规章拟设定的临时性行政许可在合法性、必要性和可行性方面存在问题的，可以建议起草单位作进一步研究。

第十八条　（中期评估）

市政府规章的实施部门应当在临时性行政许可实施6个月后，对该临时性行政许可实施情况、效果以及是否具有继续实施的必要性进行评估，并在实施期满前3个月，向市政府法制部门提交评估报告。

市政府法制部门收到评估报告后，应当在2个月内进行审核，并在听取有关方面意见的基础上，提出处理建议报市政府。

第十九条　（实施期满的处理）

根据中期评估报告和处理建议，在临时性行政许可实施期满前，由市政府作出以下处理：

（一）该临时性行政许可在合法性、必要性和可性行方面存在问题的，决定停止实施，并向社会公告；

（二）认为该临时性行政许可确有设立必要，实施满一年后需要继续实施的，提请市人大或者其常委会制定或者修改相关地方性法规，设定该项行政许可。

第二十条　（与规章制定程序的衔接）

设定临时性行政许可的调查研究和听取意见，可以与市政府规章制定程序一并进行，也可以单独进行。

第二十一条　（简化程序）

基于维护公共利益的需要，确需及早实施行政许可的，经市政府批准，起草单位对拟设定临时性行政许可的相关程序可予简化。

第二十二条　（地方性法规草案拟设定行政许可）

本市行政机关起草地方性法规草案拟设定行政许可的相关程序，按照本规定执行。法律、法规另有规定的，从其规定。

第二十三条　（实施日期）

本规定自2005年2月1日起实施。

Procedures of Shanghai Municipality on the Procedure of Creating Temporary Administrative License
Promulgated on December 13, 2004 by Decree No.38 of the Shanghai Municipal People's Government）

Article 1 （Purpose and Basis）

With a view to normalizing the procedure of creating temporary administrative license, to ensure that the creation of administrative license is legal and proper, these Provisions are formulated on the basis of the"Law of the People's Republic of China on Administrative Licenses"（hereinafter referred to as the"Administrative Licenses Law"） and the provisions of other laws and administrative regulations, and in the light of this Municipality's actual circumstances.

Article 2 （Definitions）

The temporary administrative license mentioned in these Provisions refers to the administrative license with the implementation term of one year created by the regulations of the Municipal People's Government in accordance with Article 15 of the"Administrative Licenses Law"that there is no law or regulation but it is really necessary to carry out administrative management by adopting the form of administrative license.

The drafting unit mentioned in these Provisions refers to the working departments under the Municipal People's Government, the district or county government or other organizations which are responsible for preparing draft regulations of the Municipal People's Government in accordance with the provisions of the"Regulations on the Procedure of Formulating Regulations"and the"Provisions on the Procedure of Formulating Regulations of Shanghai Municipal People's Government".

Article 3 （Demonstration of Creating an Administrative License）

Where a regulation of the Municipal People's Government plans to create a temporary administrative license, the drafting unit shall make a full demonstration of the legality, necessity and feasibility of the administrative license planned to be.

In terms of legality, the following conditions shall be satisfied:

（1） Falling into the items that may create administrative license Article 12 of the"Administrative Licenses Law";

（2） In the absence of corresponding laws, administrative regulations and local laws and regulations;

（3） Not falling into the conditions set out in Article 15 Clause 2 of the"Administrative Licenses Law"; and

（4） There have been provisions respecting the implementing organ, condition, procedure and term of the administrative license planned to be created.

In terms of necessity, the following contents shall be demonstrated:

（1） The present situation and the inadequacy of the existing means of administrative management in the field of the administrative license planned to be created;

（2） Reasons for the real need of promptly carrying out the administrative license; and

（3） Reasons for not being able yet to carry out Article 13 of the"Administrative Licenses Law".

In terms of feasibility, the following contents shall be demonstrated:

（1） Impact likely to be produced on economy and society in carrying out the administrative license;

（2） Impact on rights and duties of citizens, legal entities and other organizations in carrying out the administrative license;

（3） Whether or not the administrative license is operable; and

（4） Cost-effect evaluation of carrying out the administrative license.

Article 4 （Mode of Soliciting Opinions）

Where a regulation of the Municipal People's Government plans to create a temporary administrative license, the drafting unit shall solicit opinions. In soliciting opinions, the following modes shall be adopted:

（1） Openly soliciting opinions from the general public;

（2） Holding demonstration meetings; and

（3） Soliciting in writing opinions of relevant administrative organs.

In line with actual circumstances, the following modes may also be adopted in soliciting opinions:

（1） Holding hearings;

（2） Entrusting a relevant institution to make a cost-effect evaluation; and

（3） Other modes necessary as deemed by the drafting unit.

Article 5 （Scheme for Soliciting Opinions）

Prior to soliciting opinions, the drafting unit shall make a scheme for soliciting opinions, and specify the key demonstration contents for soliciting opinions, the modes to be adopted and the time arrangement.

Prior to the implementation of a scheme for soliciting opinions, the drafting unit shall seek opinions from the legislative affairs department under the Municipal People's Government.

Article 6 （Openly Soliciting Opinions from the Public）

Where a regulation of the Municipal People's Government plans to create a temporary administrative license, the drafting unit shall, in the drafting process, via"China Shanghai", the government website, and its own website on Internet, announce to the society matters respecting the creation of temporary administrative license so as to openly seek opinions from citizens, legal entities or other organizations.

Apart from the modes set out in the preceding clause, the drafting unit may also put up a public notice on the notice board for open government affairs at its own office place or through other open media of this Municipality.

The contents of a public notice shall cover the item name, exercising organ, condition, procedure and term of the temporary administrative license planned to be created as well as the explanation for the legality, necessity and feasibility of the temporary administrative license planned to be created. Meanwhile, the notice shall state explicitly the channel and deadline for the public to air opinions, and make known the contact mode as well.

Citizens, legal entities or other organizations may, via mail, fax, e-mail and other forms, feedback opinions to the drafting unit. The time limit to solicit opinions of the public shall be not less than 20 days from the date of the announcement.

The drafting unit shall gather, sort out and analyze the opinions of the public. After the passage of a regulation, matters related to adoption of opinions shall be feedback to the public and explanations shall be given as well.

Article 7 （Demonstration Meetings）

Where a regulation of the Municipal People's Government plans to create a temporary administrative license, the drafting unit shall hold demonstration meetings. The following persons and organizations may be invited to attend the demonstration meeting:

（1） Experts in specialized technology, administrative management and law as well as experts in other relevant fields;

（2） Representatives of citizens, legal entities or other organizations related to the administrative license planned to be created;

（3） Deputies to the people's congress and members of the political consultative conference; and

（4） Representatives of related trade organizations.

When holding a demonstration meeting, the drafting unit shall, five days in advance, send to the persons and organizations concerned the subjects under discussion and materials related to the temporary administrative license planned to be created. The drafting unit shall make the minutes of the demonstration meeting.

Article 8 （Soliciting in Writing Opinions of Relevant Administrative Organs）

Where a regulation of the Municipal People's Government plans to create a temporary administrative license, the drafting unit shall solicit in writing opinions of relevant administrative organs. The administrative organ whose opinions are solicited shall put forward within the set time written opinions, which shall be sent to the drafting unit after being affixed with the seal of the organ; if no reply is given before the deadline, it shall be construed as no opinion.

Where there are different opinions between the drafting unit and the relevant administrative organs, consultations shall be conducted fully; where no unanimity of opinion can be reached after consultations, the drafting unit shall report to the legislative affairs department of the Municipal People's Government for coordination; where there is still disaccord upon coordination, the legislative affairs department of the Municipal People's Government shall report to the leadership of the Municipal People's Government for decision.

Article 9 （Organization of Hearings）

Where a temporary administrative license planned to be created under a regulation of the Municipal People's Government directly involves the immediate interests of citizens, legal entities or other organizations, or where relevant organs, organizations and individual persons have a sharp difference in opinion, the drafting unit shall hold a hearing.

Apart from the case set out in the preceding clause, the drafting unit, if considering it necessary, may also hold a hearing.

The legal affairs organization of the drafting unit is responsible for organizing a hearing, and the relevant professional organization shall cooperate and participate.

The drafting unit shall draw up a hearing program, specify the host of a hearing, the subject under discussion, agenda, time and place of a hearing, the rule and deadline for entry of participants and visitors, and other contents, and make known to the public the hearing program via"China Shanghai", the government website, 30 days before the holding of the hearing.

Before the hearing program is made known to the public, the drafting unit shall seek opinions of the legislative affairs department of the Municipal People's Government, which shall render necessary assistance and attend the hearing as a nonvoting delegate.

Article 10 （Determining Participants in a Hearing）

Citizens, legal entities or other organizations may enter their name for the hearing; with a large number of entries, the drafting unit shall, in the principle of openness, fairness and impartiality, determine the attendants to a hearing.

The drafting unit may, depending on actual needs, invite relevant organizations and individual persons to attend a hearing.

The drafting unit shall make a list of participants in the hearing, stating their name and occupation or the organization they represent as well as the basic viewpoints they hold.

Article 11 （Determining Visitors）

Citizens, legal entities or other organizations may enter their name for being visitors at a hearing; with entries outnumbering the visitors'seats, the drafting unit shall, in order of entry precedence or by random draw in the principle of impartiality, determine the visitors at a hearing.

Article 12 （Holding of a Hearing）

The drafting unit shall, five days before the holding of a hearing, notify in writing the participants in the hearing and publish via"China Shanghai", the government website, their name and occupation and the organization they represent.

At a hearing, the participants in the hearing are entitled to air their opinions, furnish materials, debate on relevant issues, and may put questions to the drafting unit. The representative of the drafting unit shall give explanations and give reasons therefor.

Article 13 （Minutes of a Hearing）

The drafting unit shall tape-record the hearing and make the minutes of the hearing, and take accurate notes on main viewpoints and reasons of the speakers.

A participant in the hearing who considers that the minutes of the hearing differ from his or her speech is entitled to request the drafting unit to make correction.

The minutes of the hearing shall be accessible to the public.

Article 14 （Entrusting the Conduct of Cost-effect Evaluation）

The drafting unit may entrust a relevant specialized institution or social organization to conduct in a scientific way a cost-effect evaluation of a temporary administrative license planned to be created, assessing the possible impact thereof on economy, society, citizens, legal entities and other organizations. The entrusted institution or organization shall submit an evaluation report to the drafting unit as required.

Article 15 （Report on Matters of Soliciting Opinions）

After soliciting opinions in compliance with these Provisions, the drafting unit shall make a report on matters about soliciting opinions, and put forward suggestions on whether the Municipal People's Government regulation shall create a temporary administrative license.

In making a report on matters about soliciting opinions, the drafting unit shall have the report based on the collection of opinions heard from the general public, the suggestions of demonstration meetings, the written proposals of relevant administrative organs, the minutes of hearings and the cost-effect evaluation report, and classify and itemize the different opinions.

Article 16 （Giving Reasons）

When reporting to the Municipal People's Government a draft regulation of the Municipal People's Government under which a temporary administrative license is planned to be created, the drafting unit shall submit at the same time the report on matters of soliciting opinions, stating the legality, necessity and feasibility of the temporary administrative license planned to be created, the possible impact thereof on economy and society as well as matters of hearing and adopting opinions of the public.

Article 17 （Examination）

When examining the draft regulation of the Municipal People's Government submitted by the drafting unit, the legislative affairs department of the Municipal People's Government shall examine at the same time the legality, necessity, feasibility and proper procedure of the temporary administrative license planned to be created in the draft, and put forward the examination comments:

（1） Where the temporary administrative license planned to be created by the government regulation conforms to provisions of law, is really necessary to be created and is feasible, it shall be handled in accordance with the procedure of the State and this Municipality respecting the formulation of regulations.

（2） Where the drafting unit fails to solicit opinions or give reasons in accordance with the prescribed procedure, the draft may be returned to the drafting unit, with requirement for the performance of the prescribed procedure; and

（3） Where the temporary administrative license planned to be created by the Municipal People's Government regulation has any problem in terms of the legality, necessity or feasibility, a proposal that the drafting unit make further studies may be put forward.

Article 18 （Mid-term Evaluation）

The department that carries out the regulation of the Municipal People's Government shall, six months after carrying out the temporary administrative license, make an evaluation of the enforcement, effect and necessity of continuous implementation of the temporary administrative license, and submit an evaluation report to the legislative affairs department of the Municipal People's Government three months before the expiration of the implementation.

The legislative affairs department of the Municipal People's Government shall, within two months after receiving the evaluation report, conduct examination, and put forward a handling proposal based on soliciting opinions of the parties concerned to the Municipal People's Government.

Article 19 （Disposition at Expiration of Implementation）

On the basis of the mid-term evaluation report and the proposals on handling, the Municipal People's Government shall, before the expiration of the implementation of the temporary administrative license, make the following disposition:

（1） Where the temporary administrative license has any problem in terms of legality, necessity or feasibility, the Municipal People's Government shall make a decision to stop the enforcement and make such decision known to the general public; and

（2） Where the temporary administrative license is considered as really necessary to be created and enforced continually after a year of implementation, refer it to the municipal people's congress or the standing committee for the formulation or revision of relevant local law and regulation to create the administrative license.

Article 20 （Link to Regulation Formulating Procedure）

The investigation and study of and the solicitation of opinions about the creation of a temporary administrative license may be conducted along with the procedure of drawing up the regulation of the Municipal People's Government, or they may also be conducted separately as well.

Article 21 （Simplifying Procedure）

Where, based on the need of safeguarding public interests, an administrative license really has to be put into effect at an early date, the drafting unit may, upon approval of the Municipal People's Government, simplify the procedure related to the temporary administrative license planned to be created.

Article 22 （Administrative License Planned to be Created under the Draft Local Law and Regulation）

The procedure related to this Municipality's administrative organ making a draft local law and regulation that plans to create an administrative license shall follow these Provisions. Where there are provisions otherwise provided by laws and regulations, such provisions shall apply.

Article 23 （Effective Date）

These Provisions shall become effective on February 1, 2005.