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先诉抗辩权的国际比较及借鉴/唐平

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  我国在保证制度方面有一处设计与其他大陆法系的国家迥然不同。我国担保法的第十九条规定:“当事人对保证方式没有约定或者约定不明确的,按照连带责任保证承担保证责任。”而其他国家则规定,保证方式没有经过当事人的特别约定则为一般保证。我国的这样的规定就有违保证人之真实意思,使保证人的先诉抗辩权得不到实现,在一定程度上抑制担保交易的发展。为此,笔者就保证人的先诉抗辩权进行中外比较,看看我国这方面的规定与国外有哪些不同,以便能更好的保护保证人的权利。当然,笔者并不能对中外先诉抗辩权制度进行深刻通透全面的比较,只能就有关方面提出一些浅薄之见来与大家分享。

  先诉抗辩权,又称检索抗辩权或先索抗辩权,是指一般保证的保证人在主债权人向其请求履行保证责任时,有权要求主债权人先就债务人财产诉请强制执行;在主合同债权债务纠纷未经审判或仲裁,并就主债务人财产依法强制执行仍不能履行债务前,保证人可以对主债权人拒绝承担保证责任的特殊抗辩权。就其性质而言,它是一种延期的抗辩权。先诉抗辩权行使的结果,是暂时的延续债权人请求权的行使,而并不是消灭其请求权。因此,它的作用仅在于阻却,而不是消灭。

  一、先诉抗辩权之国际比较

  (一)先诉抗辩权在各个国家民法中立法体例之比较

  自罗马法保证人对债权人得主张“顺序”之利益以来,现代大陆法系国家均纷纷效仿,并在立法中予以规定,不过,对其认识程度有很大差异,从而导致了各国的立法例不尽一致,大致有以下几种:

  第一,以奥地利等国家为代表,认为保证人并不享有严格意义上的后诉利益。《奥地利民法典》第1355条规定,只要债权人对于主债务人已为审判上或者审判外的催告,就可以对保证人为请求,且并不将此催告视为一种抗辩,而看作是对于保证人请求的必备要件。根据这一规定,保证人并不享有后诉利益,只要债权人已为催告,保证人即应代为履行,而不以“先诉”为条件。保证人拒绝债权人请求的前提,是债权人对主债务人为催告。这种立法体例,实际上只是赋予了保证人催告的权利,而否认了保证人的先诉抗辩权。

  第二,以瑞士为代表的国家,认为如果债权人要对保证人要求履行债务,必须证明主债务人的财产已被强制执行但无效果。如《瑞士债务法》第485条规定:债权人仅于保证契约成立后,因主债务人破产、遗产缓期、债权人为必要注意之追索并做成损失证书、主债务人将其住所迁移国外无法在瑞士为请求或因其住所迁至外国,致权利诉追发生重大困难时,始得向保证人请求支付。依照这一项规定,债权人受到先诉抗辩权的最大制约,就是在保证人行使此权利之前,债权人须预先证明已尽了向主债务人索债务的义务。如果证明就主债务人的财产已为执行并不满足时,就可以对保证人为请求。

  第三,债权人并无向主债务人先为追索的义务,只有在保证人主张先诉抗辩权的时候,才须就主债务人的财产主张先为执行。法国、意大利、德国及我国台湾地区的民法典均采取此种立法例。《法国民法典》第2021条规定:保证人仅于债务人不履行债务时,对于债权人负履行责任,债务人之财产应先受检索;保证人抛弃检索利益或与债务人连带负担债务时,不在此限,于此种情形,保证人之债务,其效力依连带债务之原则定之。《德国民法典》第771条对先诉抗辩权的行使作出规定,即保证人于债权人未对主债务人为强制执行而无效果前,得拒绝向债务人为清偿。一次规定,债权人在未就主债务人的财产为执行是,亦可以向保证人请求履行,只有在保证人主张先诉抗辩权时,债权人才须就主债务人的财产为执行。这种立法例,债权人并无先向主债务人追索的义务,只有保证人主张先诉抗辩权时,才向主债务人追索。

  第四,将催告与追索义务同时加以规定,综合调整债权人与保证人之间关于先诉抗辩权的权利和义务,《日本民法典》就采用这种立法例,分别规定催告与检索之抗辩。《日本民法典》第452条规定:债权人请求保证人履行债务时,保证人得请求向主债务人为催告;但主债务人受破产宣告或行踪不明者,不在此限。其第453条规定:债权人虽已依前条之规定催告债务人,若保证人证明主债务人有清偿能力,而且容易执行时,则债权人应先就主债务人的财产为执行。其第455条还规定:保证人已依第452条及453条之规定为请求,但债权人怠于催告或执行,致事后不能由主债务人为全部之清偿责任时,保证人于债权人即时可受清偿之限度内,免除其义务。这种立法例,兼以催告及检索为拒绝清偿债务之抗辩,即当债权人请求保证人履行保证债务时,保证人可首先请求债权人先行催告主债务人清偿;债权人催告主债务人清偿债务后,应先就主债务人的财产予以执行,但先决条件是要由保证人证明主债务人有清偿能力且方便执行。这一立法实质上是同时赋予保证人催告抗辩权和先诉抗辩权,而且既可以择其一而行使,也可以二者均行使,最大限度的体现保证合同的补充性。显然日本将奥地利和瑞士的规定结合在一起,形成了自己的独有的抗辩制度。先诉抗辩权只是大陆法系国家所特有的一种制度,而在英美法系国家,保证人没有先诉抗辩权。但尽管如此,在担保协议中,一般还是明确规定债权人有权立即向保证人追索,以排除保证人主张先诉抗辩权的可能。

  (二)先诉抗辩权设立方式之比较

  一般保证与连带保证的根本区别在于,有无先诉抗辩权。因为在连带担保中,保证人与主债务人对债权人来讲属于同一顺序,保证人并不享有顺序利益,因而无先诉抗辩权。只有在一般保证中,保证人与债务人对债权人的债务清偿才有顺序之分,其中债务人是第一顺序,保证人是第二顺序,此时保证人才有先诉抗辩权。所以,先诉抗辩权的设立取决于当事人对一般保证的设立。

  关于一般保证的设立,现代大陆法系各国均采用当然设立的方式,即除非当事人排除或保证人抛弃利益,通常均视为一般保证。如《法国民法典》第2021条规定:“保证人仅在债务人不履行其债务时,始对债权人承担责任,债权人应先就债务人的财产进行追索,但保证人抛弃此抗辩权的或保证人与其主债务人负连带担保责任是,不在此限。”这种当然设立的方式是将一般保证作为通常的保证方式,连带保证则是例外,这是由保证债务的补充性决定的,无疑是合理的。我国由最高人民法院发布的《关于审理经济合同纠纷案件有关保证的若干问题的规定》,就采用了这种方式。然而,后来颁布的《担保法》虽然区分了一般保证和连带责任保证,但却将连带保证视为通常的保证方式,而将一般保证视为例外。这正好与《规定》相反,也与大陆法系各国的规定相反,因而使得一般保证不“一般”了。

  (三)先诉抗辩权的限制之比较

  现代各国立法虽都承认在一般保证人享有先诉抗辩权,但先诉抗辩权的行使往往受到不同程度的限制。这些限制由于各国的立法不同而存在一定的差异。

  《德国民法典》第773条规定:“(1)有下列情形之一时,先诉抗辩权消灭:1.保证人放弃抗辩权的,特别是保证人作为自身债务人承担保证的;2.在承担保证红藕,因主债务人的住所、营业场所或居所发生变动致对主债务人追诉发生重大困难的;3.对主债务人的财产开始破产程序的;4.可以认定对主债务人的财产进行强制执行仍不足以清偿债权人的。(2)在有第1款第3项、第4项的情形下,如果债权人能够从对主债务人有质权或留置权的动产取得清偿是,允许有抗辩权。”

  《法国民法典》第2021条规定:“仅在债务人不履行其债务时,保证人始对债权人负清偿责任。债权人应先就债务人财产进行追索,但如果保证人放弃先行追索抗辩,或者保证人与债务人负有连带责任时,不在此限。”由此得出,保证人放弃先行追索抗辩,或者保证人等债务人负有连带责任时,保证人不得行使先诉抗辩权。

  《瑞士债务法》第495条规定:债权人仅于保证契约成立后,因主债务人破产,破产缓期,债权人为必要注意之追索并做成损失证书,主债务人将其住所迁往国外致无法在瑞士为请求,或因将住所迁往国外,致权利追诉发生重大困难时,始得向保证人请求支付。

  我国《担保法》第17条第3款规定,有下列情形之一的,保证人不得行使先诉抗辩权:(1)债务人住所变更致使债权人要求其履行债务发生重大困难的;(2)人民法院受理破产案件,中止执行程序的;(3)保证人以书面形式放弃先诉抗辩权的。

  二、先诉抗辩权的国际经验

  对比各个国家的先诉抗辩权的相关规定,我们不难发现虽然各大陆法系国家对先诉抗辩权的限制、立法体例以及限制行使条件等方面的规定不尽相同,但是共同经验仍有迹可寻。主要的国际经验总结如下:

  (一)先诉抗辩权是一种抗辩权

  对于“先诉之利益”究竟是债权人的请求要件还是仅仅为一种抗辩,学说上颇有过争执,不过现在各国通说一般都将其视为一种抗辩。所谓抗辩权,是指债权人行使债权时,债务人得依法定事由来对抗债权人行使请求权的权利。其作用在于防御而不是攻击,因此它只能在债权人提出权利请求时或出现法定事由是才能行使。从各国的立法我们可以看的出来,先诉抗辩权是一种抗辩权。如《法国民法典》第2021条规定:“仅在债务人不履行其债务时,保证人始对债权人负清偿责任。债权人应先就债务人财产进行追索,但如果保证人放弃先行追索抗辩,或者保证人与债务人负有连带责任时,不在此限。”德国、日本、瑞士、我国台湾地区等也有类似的法律规定。

  (二)设立方式为当然设立方式

  保证人只有在一般保证中才享有先诉抗辩权,而在连带保证中保证人负有连带责任,故先诉抗辩权的设立其实主要看一般保证合同的设立。从前面的对比中我们不难看到现代各大陆法系国家均为当然设立,这样能更好的保护保证人的利益,促进担保交易的发展和资金融通。如《法国民法典》第2021条规定:“保证人仅在债务人不履行其债务时,始对债权人承担责任,债权人应先就债务人的财产进行追索,但保证人抛弃此抗辩权的或保证人与其主债务人负连带担保责任是,不在此限。”而其他国家亦有相似规定:一般保证为通常的方式,而连带保证为例外。

  (三)对先诉抗辩权的行使有所限制

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中华人民共和国标准化法实施条例(附英文)

国务院


中华人民共和国标准化法实施条例(附英文)

1990年4月6日,国务院

第一章 总则
第一条 根据《中华人民共和国标准化法》(以下简称《标准化法》)的规定,制定本条例。
第二条 对下列需要统一的技术要求,应当制定标准:
(一)工业产品的品种、规格、质量、等级或者安全、卫生要求;
(二)工业产品的设计、生产、试验、检验、包装、储存、运输、使用的方法或者生产、储存、运输过程中的安全、卫生要求;
(三)有关环境保护的各项技术要求和检验方法;
(四)建设工程的勘察、设计、施工、验收的技术要求和方法;
(五)有关工业生产、工程建设和环境保护的技术术语、符号、代号、制图方法、互换配合要求;
(六)农业(含林业、牧业、渔业,下同)产品(含种子、种苗、种畜、种禽,下同)的品种、规格、质量、等级、检验、包装、储存、运输以及生产技术、管理技术的要求;
(七)信息、能源、资源、交通运输的技术要求。
第三条 国家有计划地发展标准化事业。标准化工作应当纳入各级国民经济和社会发展计划。
第四条 国家鼓励采用国际标准和国外先进标准,积极参与制定国际标准。

第二章 标准化工作的管理
第五条 标准化工作的任务是制定标准、组织实施标准和对标准的实施进行监督。
第六条 国务院标准化行政主管部门统一管理全国标准化工作,履行下列职责:
(一)组织贯彻国家有关标准化工作的法律、法规、方针、政策;
(二)组织制定全国标准化工作规划、计划;
(三)组织制定国家标准;
(四)指导国务院有关行政主管部门和省、自治区、直辖市人民政府标准化行政主管部门的标准化工作,协调和处理有关标准化工作问题;
(五)组织实施标准;
(六)对标准的实施情况进行监督检查;
(七)统一管理全国的产品质量认证工作;
(八)统一负责对有关国际标准化组织的业务联系。
第七条 国务院有关行政主管部门分工管理本部门、本行业的标准化工作,履行下列职责:
(一)贯彻国家标准化工作的法律、法规、方针、政策,并制定在本部门、本行业实施的具体办法;
(二)制定本部门、本行业的标准化工作规划、计划;
(三)承担国家下达的草拟国家标准的任务,组织制定行业标准;
(四)指导省、自治区、直辖市有关行政主管部门的标准化工作;
(五)组织本部门、本行业实施标准;
(六)对标准实施情况进行监督检查;
(七)经国务院标准化行政主管部门授权,分工管理本行业的产品质量认证工作。
第八条 省、自治区、直辖市人民政府标准化行政主管部门统一管理本行政区域的标准化工作,履行下列职责:
(一)贯彻国家标准化工作的法律、法规、方针、政策,并制定在本行政区域实施的具体办法;
(二)制定地方标准化工作规划、计划;
(三)组织制定地方标准;
(四)指导本行政区域有关行政主管部门的标准化工作,协调和处理有关标准化工作问题;
(五)在本行政区域组织实施标准;
(六)对标准实施情况进行监督检查。
第九条 省、自治区、直辖市有关行政主管部门分工管理本行政区域内本部门、本行业的标准化工作,履行下列职责:
(一)贯彻国家和本部门、本行业、本行政区域标准化工作的法律、法规、方针、政策,并制定实施的具体办法;
(二)制定本行政区域内本部门、本行业的标准化工作规划、计划;
(三)承担省、自治区、直辖市人民政府下达的草拟地方标准的任务;
(四)在本行政区域内组织本部门、本行业实施标准;
(五)对标准实施情况进行监督检查。
第十条 市、县标准化行政主管部门和有关行政主管部门的职责分工,由省、自治区、直辖市人民政府规定。

第三章 标准的制定
第十一条 对需要在全国范围内统一的下列技术要求,应当制定国家标准(含标准样品的制作):
(一)互换配合、通用技术语言要求;
(二)保障人体健康和人身、财产安全的技术要求;
(三)基本原料、燃料、材料的技术要求;
(四)通用基础件的技术要求;
(五)通用的试验、检验方法;
(六)通用的管理技术要求;
(七)工程建设的重要技术要求;
(八)国家需要控制的其他重要产品的技术要求。
第十二条 国家标准由国务院标准化行政主管部门编制计划,组织草拟,统一审批、编号、发布。
工程建设、药品、食品卫生、兽药、环境保护的国家标准,分别由国务院工程建设主管部门、卫生主管部门、农业主管部门、环境保护主管部门组织草拟、审批;其编号、发布办法由国务院标准化行政主管部门会同国务院有关行政主管部门制定。
法律对国家标准的制定另有规定的,依照法律的规定执行。
第十三条 对没有国家标准而又需要在全国某个行业范围内统一的技术要求,可以制定行业标准(含标准样品的制作)。制定行业标准的项目由国务院有关行政主管部门确定。
第十四条 行业标准由国务院有关行政主管部门编制计划,组织草拟,统一审批、编号、发布,并报国务院标准化行政主管部门备案。
行业标准在相应的国家标准实施后,自行废止。
第十五条 对没有国家标准和行业标准而又需要在省、自治区、直辖市范围内统一的工业产品的安全、卫生要求,可以制定地方标准。制定地方标准的项目,由省、自治区、直辖市人民政府标准化行政主管部门确定。
第十六条 地方标准由省、自治区、直辖市人民政府标准化行政主管部门编制计划,组织草拟,统一审批、编号、发布,并报国务院标准化行政主管部门和国务院有关行政主管部门备案。
法律对地方标准的制定另有规定的,依照法律的规定执行。
地方标准在相应的国家标准或行业标准实施后,自行废止。
第十七条 企业生产的产品没有国家标准、行业标准和地方标准的,应当制定相应的企业标准,作为组织生产的依据。企业标准由企业组织制定(农业企业标准制定办法另定),并按省、自治区、直辖市人民政府的规定备案。
对已有国家标准、行业标准或者地方标准的,鼓励企业制定严于国家标准、行业标准或者地方标准要求的企业标准,在企业内部适用。
第十八条 国家标准、行业标准分为强制性标准和推荐性标准。
下列标准属于强制性标准:
(一)药品标准,食品卫生标准,兽药标准;
(二)产品及产品生产、储运和使用中的安全、卫生标准,劳动安全、卫生标准,运输安全标准;
(三)工程建设的质量、安全、卫生标准及国家需要控制的其他工程建设标准;
(四)环境保护的污染物排放标准和环境质量标准;
(五)重要的通用技术术语、符号、代号和制图方法;
(六)通用的试验、检验方法标准;
(七)互换配合标准;
(八)国家需要控制的重要产品质量标准。
国家需要控制的重要产品目录由国务院标准化行政主管部门会同国务院有关行政主管部门确定。
强制性标准以外的标准是推荐性标准。
省、自治区、直辖市人民政府标准化行政主管部门制定的工业产品的安全、卫生要求的地方标准,在本行政区域内是强制性标准。
第十九条 制定标准应当发挥行业协会、科学技术研究机构和学术团体的作用。
制定国家标准、行业标准和地方标准的部门应当组织由用户、生产单位、行业协会、科学技术研究机构、学术团体及有关部门的专家组成标准化技术委员会,负责标准草拟和参加标准草案的技术审查工作。未组成标准化技术委员会的,可以由标准化技术归口单位负责标准草拟和参加标准草案的技术审查工作。
制定企业标准应当充分听取使用单位、科学技术研究机构的意见。
第二十条 标准实施后,制定标准的部门应当根据科学技术的发展和经济建设的需要适时进行复审。标准复审周期一般不超过五年。
第二十一条 国家标准、行业标准和地方标准的代号、编号办法,由国务院标准化行政主管部门统一规定。
企业标准的代号、编号方法,由国务院标准化行政主管部门会同国务院有关行政主管部门规定。
第二十二条 标准的出版、发行办法,由制定标准的部门规定。

第四章 标准的实施与监督
第二十三条 从事科研、生产、经营的单位和个人,必须严格执行强制性标准。不符合强制性标准的产品,禁止生产、销售和进口。
第二十四条 企业生产执行国家标准、行业标准、地方标准或企业标准,应当在产品或其说明书、包装物上标注所执行标准的代号、编号、名称。
第二十五条 出口产品的技术要求由合同双方约定。
出口产品在国内销售时,属于我国强制性标准管理范围的,必须符合强制性标准的要求。
第二十六条 企业研制新产品、改进产品、进行技术改造,应当符合标准化要求。
第二十七条 国务院标准化行政主管部门组织或授权国务院有关行政主管部门建立行业认证机构,进行产品质量认证工作。
第二十八条 国务院标准化行政主管部门统一负责全国标准实施的监督。国务院有关行政主管部门分工负责本部门、本行业的标准实施的监督。
省、自治区、直辖市标准化行政主管部门统一负责本行政区域内的标准实施的监督。省、自治区、直辖市人民政府有关行政主管部门分工负责本行政区域内本部门、本行业的标准实施的监督。
市、县标准化行政主管部门和有关行政主管部门,按照省、自治区、直辖市人民政府规定的各自的职责,负责本行政区域内的标准实施的监督。
第二十九条 县级以上人民政府标准化行政主管部门,可以根据需要设置检验机构,或者授权其他单位的检验机构,对产品是否符合标准进行检验和承担其他标准实施的监督检验任务。检验机构的设置应当合理布局,充分利用现有力量。
国家检验机构由国务院标准化行政主管部门会同国务院有关行政主管部门规划、审查。地方检验机构由省、自治区、直辖市人民政府标准化行政主管部门会同省级有关行政主管部门规划、审查。
处理有关产品是否符合标准的争议,以本条规定的检验机构的检验数据为准。
第三十条 国务院有关行政主管部门可以根据需要和国家有关规定设立检验机构,负责本行业、本部门的检验工作。
第三十一条 国家机关、社会团体、企业事业单位及全体公民均有权检举、揭发违反强制性标准的行为。

第五章 法律责任
第三十二条 违反《标准化法》和本条例有关规定,有下列情形之一的,由标准化行政主管部门或有关行政主管部门在各自的职权范围内责令限期改进,并可通报批评或给予责任者行政处分:
(一)企业未按规定制定标准作为组织生产依据的;
(二)企业未按规定要求将产品标准上报备案的;
(三)企业的产品未按规定附有标识或与其标识不符的;
(四)企业研制新产品、改进产品、进行技术改造,不符合标准化要求的;
(五)科研、设计、生产中违反有关强制性标准规定的。
第三十三条 生产不符合强制性标准的产品的,应当责令其停止生产,并没收产品,监督销毁或作必要技术处理;处以该批产品货值金额百分之二十至百分之五十的罚款;对有关责任者处以五千元以下罚款。
销售不符合强制性标准的商品的,应当责令其停止销售,并限期追回已售出的商品,监督销毁或作必要技术处理;没收违法所得;处以该批商品货值金额百分之十至百分之二十的罚款;对有关责任者处以五千元以下罚款。
进口不符合强制性标准的产品的,应当封存并没收该产品,监督销毁或作必要技术处理;处以进口产品货值金额百分之二十至百分之五十的罚款;对有关责任者给予行政处分,并可处以五千元以下罚款。
本条规定的责令停止生产、行政处分,由有关行政主管部门决定;其他行政处罚由标准化行政主管部门和工商行政管理部门依据职权决定。
第三十四条 生产、销售、进口不符合强制性标准的产品,造成严重后果,构成犯罪的,由司法机关依法追究直接责任人员的刑事责任。
第三十五条 获得认证证书的产品不符合认证标准而使用认证标志出厂销售的,由标准化行政主管部门责令其停止销售,并处以违法所得二倍以下的罚款;情节严重的,由认证部门撤销其认证证书。
第三十六条 产品未经认证或者认证不合格而擅自使用认证标志出厂销售的,由标准化行政主管部门责令其停止销售,处以违法所得三倍以下的罚款,并对单位负责人处以五千元以下罚款。
第三十七条 当事人对没收产品、没收违法所得和罚款的处罚不服的,可以在接到处罚通知之日起十五日内,向作出处罚决定的机关的上一级机关申请复议;对复议决定不服的,可以在接到复议决定之日起十五日内,向人民法院起诉。当事人也可以在接到处罚通知之日起十五日内,直接向人民法院起诉。当事人逾期不申请复议或者不向人民法院起诉又不履行处罚决定的,由作出处罚决定的机关申请人民法院强制执行。
第三十八条 本条例第三十二条至第三十六条规定的处罚不免除由此产生的对他人的损害赔偿责任。受到损害的有权要求责任人赔偿损失。赔偿责任和赔偿金额纠纷可以由有关行政主管部门处理,当事人也可以直接向人民法院起诉。
第三十九条 标准化工作的监督、检验、管理人员有下列行为之一的,由有关主管部门给予行政处分,构成犯罪的,由司法机关依法追究刑事责任:
(一)违反本条例规定,工作失误,造成损失的;
(二)伪造、篡改检验数据的;
(三)徇私舞弊、滥用职权、索贿受贿的。
第四十条 罚没收入全部上缴财政。对单位的罚款,一律从其自有资金中支付,不得列入成本。对责任人的罚款,不得从公款中核销。

第六章 附则
第四十一条 军用标准化管理条例,由国务院、中央军委另行制定。
第四十二条 工程建设标准化管理规定,由国务院工程建设主管部门依据《标准化法》和本条例的有关规定另行制定,报国务院批准后实施。
第四十三条 本条例由国家技术监督局负责解释。
第四十四条 本条例自发布之日起施行。(附英文)

REGULATIONS FOR THE IMPLEMENTATION OF THE STANDARDIZATION LAW OFTHE PEOPLE'S REPUBLIC OF CHINA

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)
REGULATIONS FOR THE IMPLEMENTATION OF THE STANDARDIZATION LAW OF
THE PEOPLE'S REPUBLIC OF CHINA
(Promulgated by Decree No. 53 of the State Council of the People's
Republic of China on April 6, 1990 and effective as of the date of
promulgation)

Chapter I General Provisions
Article 1
These Regulations are formulated in accordance with the provisions of the
Standardization Law of the People's Republic of China (hereinafter
referred to as the Standardization Law).
Article 2
Standards should be formulated for the following technical requirements
that need to be unified:
(1) varieties, specifications, quality and grades of industrial products
or requirements pertinent to safety and hygiene;
(2) methods for design, production, experimentation, examination, packing,
storage, transportation and utilization of industrial products or
requirements pertinent to safety and hygiene in the course of production,
storage and transportation;
(3) various technical requirements and methods for examination concerning
environmental protection;
(4) technical requirements and methods for surveying, designing,
construction and examination and acceptance in building projects;
(5) technical terms, symbols, codes, drafting methods and requirements for
conversion and coordination concerning industrial production, project
construction and environmental protection;
(6) varieties, specifications, quality, grades, examination, packing,
storage, transportation and requirements for production technology and
management expertise concerning agricultural products (including seeds,
seedlings, breeding stock and breeding poultry and those in forestry,
animal husbandry and fishery; the same below);
(7) technical requirements concerning information, energy, resources, and
transport.
Article 3
The State develops standardization undertakings in a planned way.
Standardization work should be included in the plans for national economic
and social development at the various levels.
Article 4
The State encourages the adoption of international standards and advanced
standards abroad and takes an active part in the formulation of
international standards.

Chapter II Administration of Standardization Work
Article 5
The task for those who are in charge of standardization work is:
formulating standards, organizing the implementation of standards and
exercising supervision over the implementation of standards.
Article 6
The competent department in charge of standardization under the State
Council exercises unified leadership over the standardization work
throughout the country, and it performs the following duties:
(1) organizing the implementation of the State's laws, regulations,
policies and measures concerning standardization;
(2) organizing the formulation of programmes and plans concerning
standardization work in the whole country;
(3) organizing the formulation of national standards;
(4) providing guidance to the relevant competent departments under the
State Council and administrative departments for standardization work in
the people's governments in the provinces, autonomous regions and the
municipalities directly under the Central Government in their
standardization work, and coordinating work in this field and dealing with
problems arising therein;
(5) organizing the implementation of standards;
(6) conducting supervision over and inspection on the implementation of
standards;
(7) exercising unified leadership over attestation of product quality in
the whole country;
(8) taking overall responsibility for professional contacts with the
relevant international standardization organizations.
Article 7
The relevant competent departments under the State Council are responsible
for the standardization work in their own departments or trades. They
shall perform the following duties:
(1) implementing the State's laws, regulations, policies and measures
concerning standardization work and formulating specific procedures for
their implementation in their departments and trades;
(2) formulating programmes and plans concerning standardization work in
their departments and trades;
(3) undertaking tasks assigned by the State of drafting state standards
and organizing the formulation of the standards in their respective
trades;
(4) providing guidance to the relevant competent authorities in the
provinces, autonomous regions and municipalities directly under the
Central Government in their standardization work;
(5) organizing the implementation of the standards in their departments
and trades;
(6) conducting supervision over and inspection on the implementation of
standards;
(7) taking charge of attestation of product quality in their own trades on
the authorization from the competent department in charge of
standardization under the State Council.
Article 8
The administrative departments for standardization in the people's
governments in the provinces, autonomous regions and municipalities
directly under the Central Government exercise unified leadership over
standardization work in their respective administrative regions, and shall
perform the following duties:
(1) implementing the State's laws, regulations, policies and measures
concerning standardization work and formulating specific procedures for
their implementation in their respective administrative regions;
(2) formulating local programmes and plans concerning standardization
work;
(3) organizing the formulation of local standards;
(4) providing guidance to the relevant administrative authorities in their
own administrative regions in their standardization work, and coordinating
work in this field and dealing with problems arising therein;
(5) organizing the implementation of the standards in their respective
administrative regions;
(6) conducting supervision over and inspection on the implementation of
the standards.
Article 9
The relevant competent administrative authorities in the provinces,
autonomous regions and municipalities directly under the Central
Government are responsible for the standardization work in their own
departments and trades in the respective administrative regions, and shall
perform the following duties:
(1) implementing the laws, regulations, policies and measures concerning
standardization work formulated by the State and their respective
departments, trades and administrative regions and formulating specific
procedures for their implementation;
(2) formulating programmes and plans concerning standardization work for
their own departments and trades in the respective administrative regions;
(3) undertaking the tasks of drafting local standards assigned by the
people's governments in the provinces, autonomous regions and
municipalities directly under the Central Government;
(4) organizing the implementation of the standards in their own
departments and trades in the respective administrative regions;
(5) conducting supervision over and inspection on the implementation of
the standards.
Article 10
The division of the duties of the administrative departments in charge of
standardization and the relevant competent administrative authorities in
municipalities and counties shall be stipulated by the people's
governments in the provinces, autonomous regions and municipalities
directly under the Central Government.

Chapter III The Formulation of Standards
Article 11
National standards (including making sample standards) should be
formulated for the following technical requirements that need to be
unified throughout the country:
(1) requirements for standardizing commonly used technical terms;
(2) technical requirements for guaranteeing human health and personal and
property safety;
(3) technical requirements for essential raw materials, fuels and
processed materials;
(4) technical requirements for commonly used basic spare parts;
(5) commonly used methods of experimentation and examination;
(6) technical requirements for commonly used management expertise;
(7) important technical requirements in project construction;
(8) technical requirements for the other important products that must be
controlled by the State.
Article 12
In formulating national standards, the administrative department in charge
of standardization under the State Council shall be responsible for making
plans, organizing drafting, examination and approval, numbering and
promulgation. In formulating national standards for project construction,
pharmaceuticals, food hygiene, veterinary medicine and environmental
protection, the competent departments in charge of project construction,
public health, agriculture and environmental protection under the State
Council shall be responsible for organizing drafting and examination and
approval in their respective departments. The procedures for numbering and
promulgation shall be formulated by the administrative department in
charge of standardization under the State Council in conjunction with the
relevant competent departments under the State Council.
Where there are, in law, provisions different from those above for the
formulation of national standards, those provisions in law shall prevail.
Article 13
If there are no national standards for those technical requirements which
need to be standardized for certain trades throughout the country, trade
standards (including the making of sample standards) may be formulated.
Items of trade standards to be formulated shall be determined by the
relevant competent administrative departments under the State Council.
Article 14
In formulating trade standards, the relevant competent administrative
departments under the State Council shall be responsible for drawing up
plans, organizing drafting, examination and approval, numbering and
promulgation and they should report to the administrative department in
charge of standardization under the State Council for the record.
Trade standards shall be null and void automatically after the
corresponding national standards have taken effect.
Article 15
Local standards may be formulated for the safety and sanitation
requirements for industrial goods which need to be unified in the
provinces, autonomous regions and municipalities directly under the
Central Government, in the absence of national standards or trade
standards for them. Items of local standards to be formulated shall be
determined by the administrative departments for standardization of the
people's governments in the provinces, autonomous regions and
municipalities directly under the Central Government.
Article 16
In formulating local standards, the administrative departments for
standardization of the people's governments in the provinces, autonomous
regions and municipalities directly under the Central Government shall be
responsible for drawing up plans, organizing drafting, examination and
approval, numbering and promulgation, and they should report to the
administrative department in charge of standardization under the State
Council and the relevant competent departments under the Council for the
record. Where there are, in law, provisions different from those above
for the formulation of local standards, those provisions in law shall
prevail.
Local standards shall be null and void automatically after the
corresponding national standards or trade standards go into effect.
Article 17
In the absence of national standards, trade standards and local standards
for certain products, the enterprises producing such products shall
formulate their own standards as the basis for organizing production.
Enterprise standards shall be formulated by the relevant enterprises
themselves (procedures for formulating standards for agricultural
enterprises shall be provided for separately), and shall be filed for the
record in accordance with the provisions of the people's governments in
the provinces, autonomous regions and municipalities directly under the
Central Government.
Where there are already national standards, trade standards and local
standards, enterprises should be encouraged to formulate enterprise
standards which are stricter than the corresponding national, trade or
local standards and apply them within their enterprises.
Article 18
National standards and trade standards are divided into compulsory
standards and recommendatory standards.
The following standards belong in the compulsory category:
(1) standards for pharmaceuticals, food hygiene and veterinary medicine;
(2) safety and hygiene standards for products and the production, storage
and transportation and utilization of products; standards for the safety
of labour and hygiene standards and safety standards for transportation;
(3) quality, safety and sanitation standards for project construction and
other standards for project construction that must be controlled by the
State;
(4) standards for the discharge of pollutants concerning environmental
protection and standards for environmental quality;
(5) important technical terms, symbols, codes and drafting methods in
common use;
(6) standards for commonly used methods of experimentation and
examination;
(7) standards for conversion and coordination;
(8) quality standards for the important products which need to be
controlled by the State. The catalogue of the important products which
need to be controlled by the State shall be fixed by the administrative
department for standardization under the State Council in conjunction with
the relevant competent administrative departments under the State Council.
Those standards which are not compulsory are recommendatory standards.
The local standards for safety and hygiene requirements for industrial
products formulated by the administrative departments in charge of
standardization of the people's governments in the provinces, autonomous
regions and municipalities directly under the Central Government are
compulsory standards in their respective administrative regions.
Article 19
Trade associations, research institutions for science and technology, and
academic organizations should be given a role to play in formulating
standards. The departments responsible for formulating national, trade
and local standards should set up standardization technical committees
consisting of experts from users, production units, trade associations,
research institutions for science and technology, academic organizations
and the departments concerned, which shall be responsible for drafting
standards and examining the technical aspects of the drafts. Where
standardization technical committees have not been set up, the units
charged with specific responsibility for standardization technology may
take charge of drafting standards and examining the technical aspects of
the drafts.
It is necessary to heed fully the opinions of the users and research
institutions for science and technology in formulating enterprise
standards.
Article 20
After standards go into effect, the departments which formulated the
standards shall carry out timely reexaminations in light of the
development of science and technology and the needs of economic
construction. Normally, reexamination should be conducted every five
years, at the longest.
Article 21
The procedures of coding and numbering for national, trade and local
standards shall be provided for by the administrative department in charge
of standardization under the State Council.
The procedures of coding and numbering for enterprise standards shall be
provided for by the administrative department in charge of standardization
under the State Council in conjunction with the relevant competent
administrative departments under the State Council.
Article 22
The procedures of publication and distribution of standards shall be
stipulated by the departments which have formulated the standards.

Chapter IV Implementation and Supervision Concerning Standards
Article 23
Any units and individuals that are engaged in scientific research,
production and operation must strictly implement compulsory standards. The
products which do not measure up to compulsory standards may not be
allowed to be produced, marketed or imported.
Article 24
Enterprises may go by the national, trade and local standards or
enterprise standards in production. The codes, serial numbers and names of
the standards should be marked on their products, or written in the
technical manuals or on the packages.
Article 25
The technical requirements for export products shall be agreed upon by the
two contracting parties.
When those export products which should be subject to compulsory standards
of China are sold at domestic markets, they must meet the requirements of
the relevant compulsory standards.
Article 26
Enterprises should meet standardization requirements in developing new
products, improving products or carrying out technical innovations.
Article 27
The administrative department in charge of standardization under the State
Council organizes or authorizes the relevant competent departments under
the State Council to set up trade attestation agencies for carrying out
product quality attestation.
Article 28
The administrative department in charge of standardization under the State
Council shall be responsible for the supervision over the implementation
of standards throughout the country. The relevant administrative
departments under the State Council shall be responsible for the
supervision over the implementation of the standards in their respective
departments and trades.
The administration departments for standardization in the provinces,
autonomous regions and municipalities directly under the Central
Government shall be responsible for the supervision over the
implementation of the standards in their respective administrative areas.
The relevant administrative authorities in the people's governments in the
provinces, autonomous regions and municipalities directly under the
Central Government shall be responsible for the supervision over the
implementation of the standards in their departments and trades in the
respective administrative areas.
The administrative departments for standardization and the relevant
administrative authorities in municipalities and counties shall be
responsible for the supervision over the implementation of the standards
in their respective administrative areas according to the duties assigned
to them by the people's governments of the provinces, autonomous regions
and municipalities directly under the Central Government.
Article 29
The administrative departments in charge of standardization in the
people's governments above county level may, according to their needs, set
up examination agencies or authorize the examination agencies of other
units to ensure products are up to the standards and undertake other tasks
of supervision and examination concerning the implementation of standards
in setting up examination agencies, attention should be paid to a rational
geographical allocation and making full use of the available personnel and
facilities.
The establishment of state examination agencies shall be planned and
examined by the administrative department in charge of standardization
under the State Council in conjunction with the relevant administrative
departments under the State Council. The establishment of local
examination agencies shall be planned and examined by the administrative
departments in charge of standardization in the people's governments of
the provinces, autonomous regions and municipalities directly under the
Central Government in conjunction with the relevant administrative
authorities at provincial level. The data provided by the examination
agencies stipulated in this Article shall be taken as the criterion in
solving disputes over whether certain products are up to the relevant

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关于在餐饮与饭店业开展减少使用一次性筷子工作的通知

环境保护部 商务部 国家质量监督检验检疫总局等


关于在餐饮与饭店业开展减少使用一次性筷子工作的通知

商商贸发[2010]220号


为贯彻落实《国务院办公厅关于深入开展全民节能行动的通知》(国办发[2008]16号)精神,持续推动“减少使用一次性筷子”工作深入开展并切实取得实效,在餐饮业形成节约资源、保护环境的良好氛围,现就有关事项通知如下:

一、充分认识减少使用一次性筷子工作的重要意义

近年来,一次性筷子的大量使用,卫生与环保问题突出,社会对此反映强烈。加强一次性筷子生产、流通和回收环节监管,减少使用一次性筷子、提倡不使用一次性筷子,是贯彻落实科学发展观、建设资源节约型和环境友好型社会的重要举措。各地区、各部门要在支持落实倡议内容的基础上,针对“一次性筷子”生产、流通和使用消费中存在的突出问题进一步采取有效措施,切实减少一次性筷子的使用。

二、加强部门联动,形成工作合力

各部门要按照各自职能,建立工作机制,通力协作,密切配合,联合做好“减少使用一次性筷子”的有关工作。各级商务部门要切实做好餐饮经营与消费环节的引导工作。发展改革、林业部门要合理调整、不断优化林产品产业结构,限制新上一次性木筷生产企业,规范现有企业的一次性木筷生产,完善一次性木筷标准。质检部门要加强对一次性筷子生产企业的监管,督促生产企业提高生产技术条件,确保按照标准组织生产。税务部门要进一步研究调整税费政策,为减少使用一次性筷子提供政策支持。食品药品监管和仍承担餐饮食品安全监管的部门要加强对一次性筷子的监管。商务、发展改革部门要建立一次性筷子回收利用机制,在城市的消费集中区设立回收点,实现资源再利用。环保部门要加强配合,切实推动减少使用一次性筷子相关工作。

三、加强对企业引导,使减少使用一次性筷子成为企业自觉行动

为扩大社会影响,使此项工作持续有效加以推进,各地、各部门要充分发挥协会组织在加强行业自律、规范企业行为等方面的作用,进一步开展多种形式的社会倡议和相关活动,做好国家有关法律法规以及标准的宣传与贯彻落实工作,引导加工厂商、餐饮企业不断增强节约资源、保护环境意识,使减少使用、倡导不使用一次性筷子成为日常经营管理的自觉行动。固定经营场所的餐饮企业,要主动提供干净卫生、安全可靠的可循环使用筷子。必须提供一次性筷子的非固定经营场所以及外卖、送餐企业,要尽量使用一次性竹筷,对筷子卫生质量严格把关,并切实做好回收利用。要充分发挥新闻媒体和舆论的导向作用,大力宣传先进企业“减少使用一次性筷子”的成功做法和典型经验,形成努力减少使用一次性筷子的良好氛围。各类相关企业要自觉接受人民群众和社会各界的监督,逐步规范一次性筷子的生产和流通,以安全卫生的可循环使用筷子替代一次性筷子。

四、加强对消费环节的引导,形成良好社会基础

各地区、各部门要加强指导和监督,相关行业协会要引导企业严格自律,大力倡导绿色消费、适度消费、健康用餐的科学消费理念,通过建立健全有关规章制度,将“减少使用一次性筷子”落实到各个环节。鼓励使用一次性筷子较多的中小型餐饮企业,尽快配套可重复使用筷子的清洗、消毒、保管设施,确保其达到安全卫生标准,为消费者减少或不使用一次性筷子创造良好条件。要采取群众喜闻乐见的宣传形式和鼓励引导措施,加强对消费者的引导,使减少和不使用一次性筷子成为餐饮消费的自觉行动。要将“减少使用一次性筷子”作为各地建设资源节约型、环境友好型社会有关活动的一项重要内容,增强宣传的普及性和持久性,赢得消费者的广泛理解和支持。

五、积极做好督导检查,确保取得应有成效

各地区、各部门要相应制定有关政策措施,鼓励支持企业完善配套设施,为减少使用一次性筷子创造有利条件。同时,进一步加强市场监管,不定期组织开展对减少使用一次性筷子、倡导不使用一次性筷子工作的检查。对提供可重复使用筷子而不符合卫生要求的企业,要责令整改;对不符合质量、卫生要求的一次性筷子,要依法责令退市并跟踪监管,严防再次流入市场。

商务部

国家发展改革委员会

环境保护部

国家税务总局

国家质量监督检验检疫总局

国家林业局

国家食品药品监督管理局

二0一0年六月十七日