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    從“三證合一”到“五證合一”

    2016-5-31 10:35:22

    簡政放權實施以來,對推動全面改革、激發市場活力、增強發展動力、社會創造力和轉變政府職能等具有非常重要的引領帶動作用。目前,這項改革仍在進一步深化。比如,在全面實施企業“三證合一”基礎上,再整合社會保險登記證和統計登記證,實現“五證合一、一照一碼”——

    5月18日,國務院常務會議對推進商事制度改革作出新部署,決定在全面實施企業“三證合一”基礎上,實現“五證合一、一照一碼”,降低創業準入的制度性成本。5月24日,國務院又公布了《關于印發2016年推進簡政放權放管結合優化服務改革工作要點的通知》,再次部署“五證合一”。

    切實減輕企業負擔

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    這項改革大大提高了設立企業的便利化程度,激發了市場主體的活力。現在,國務院又提出在“三證合一”的基礎上,再整合社會保險和統計登記證,實現“五證合一、一照一碼”。

    據記者了解,此前各地對五證、四證的理解不一,推進程度也不一樣。目前僅有浙江實現了國務院常務會議要求的“五證合一”,吉林、深圳實行的“五證合一”指的是組織機構代碼證、稅務登記證、社會保險登記證和刻制公章準許證明,沒有統計登記證。福建平潭自貿區對外資企業實行的“五證合一”其實是“四證一章”,即營業執照、稅務登記證、組織機構代碼證、外資企業批準證書、公章刻制備案,內資企業設立還是“三證一章”。黑龍江自去年7月起實施的“四證合一”已將企業營業執照、組織機構代碼證、稅務登記證和社會保險登記證納入,但還沒有統計登記證。

    由于有“三證合一”的基礎,各地在推進多證合一的過程中普遍延續了一個窗口受理、一次提交表格、聯動審批的方式,讓數據多跑腿,群眾少跑路。吉林省實施的“五證合一”、平潭等地的“四證合一”雖然少了一個統計證,但能免去跑公安部門開具刻章證明,對企業來說也省了不少力。記者在平潭市場監督管理局辦事大廳看到,大廳的一角就有一個公安部門授權的刻章點,辦理完注冊登記的企業可以直接在此刻證,當場就能拿到。

    部門協調難題待破

    “五證合一”方便了群眾,但對政府相關部門來說是個考驗。首先就是各部門之間的協調問題。

    一位工商系統內部人士表示,“五證合一”涉及的部門不只工商一家,單靠工商系統無法協調,當年的“三證合一”也是在地方編辦的指導下推進的。記者在采訪中也發現,各地的“多證合一、一照一碼”工作大都由省政府出臺專門文件,成立由副省長級別領導牽頭的工作小組部署推進。例如江蘇是以省人民政府的名義印發了《關于實行“三證合一”登記制度的實施意見(試行)》,黑龍江則出臺了《省人民政府辦公廳關于實行企業“四證合一”登記制度的實施意見》。

    “現在的‘五證合一’也一樣,需要頂層設計,上層推動,單靠工商系統是推不動的。”這位工商系統內部人士表示,目前我們正在積極落實。上周編辦剛剛召集開會,商討推進“五證合一”問題,目前還沒有形成最后意見。

    同時,新政策的落實還需要相應的配套政策,全面推進落實還需要一段時間。

    推進“五證合一”的另外一個難點在信息對接。此前“三證合一”能實現,是因為各部門搭建了相應的數據平臺,對資料進行數據化處理和傳輸。例如,浙江搭建了浙江政務服務網統一信息共享交換平臺和全省統一信用基礎數據庫,受理窗口人員在平臺上統一錄入申請表所有相關內容后,實現10分鐘內申報材料電子信息推送、部門信息交換、企業登記信息共享、審批進度跟蹤以及統一代碼獲取、檔案資料共享等功能。同時打通與企業信用信息公示系統的接口,企業申請設立登記后,登記結果實時在網上公開。

    但是,各個地區、各個部門的信息基礎不一樣,有些部門的工作流程還有大量是紙質化的,無法與信息平臺對接;有些地區、有些部門即使有一定的信息化基礎,但由于此前各個部門之間并沒有采用統一的信息平臺,數據對接也有一定難度。信息平臺的升級改造、對接也需要一定時間和投入。

    國務院并未對“五證合一”的推行劃定具體時間,目前工商系統和各地政府也沒有具體的操作方案。福建工商系統一位內部人士認為,只要上級部門能把方案敲定,推行“五證合一”的難度并不大,年內肯定能全面推開。

    “證照分離”受到期待

    與“五證合一”配套的改革措施還有削減審批、“證照分離”試點等。

    據記者了解,此前福建平潭自貿區僅保留了6類9項前置審批,為全國最少。但去年3月,國務院發布了《關于取消和調整一批行政審批項目等事項的決定》,保留了34項工商登記前置審批事項。2015年5月,國家工商總局據此梳理編制了《工商登記前置審批事項目錄》,再次強調各地要調整規范本地區自行公布的工商登記前置審批目錄。福建平潭也按照全國標準,保留34項前置審批,主要是危險化學品經營許可、通用航空企業經營許可、設立期貨交易場所審批、保險公司及其分支機構設立審批等對經營資質要求特別高的行業準入。

    國務院還有更大的決心。《關于印發2016年推進簡政放權放管結合優化服務改革工作要點的通知》中,提出今年再取消三分之一工商登記前置審批事項,削減比例達到原總量的90%以上,同步取消后置審批事項50項以上。這意味著至少還要削減11項前置審批。至于是哪幾項,專家表示,削減前置審批事項涉及多個部門,只有國務院才有權限。

    “證照分離”也一樣,目前全國只在上海試點。今年1月底,上海市出臺了開展“證照分離”改革試點的總體方案。根據國務院此前批復的方案,上海“證照分離”改革選取審批頻次比較高、改革后效果比較明顯的116項行政許可事項,先行開展改革試驗。對企業能夠自主決策的經營活動,如設立可錄光盤生產企業審批,直接取消行政審批;對加工貿易合同審批等6項行政許可事項,采取備案制;對暫不能取消但又可以在事中事后監管的,如機動車維修經營許可,實行告知承諾制。對暫時不能取消審批,也不適合采取告知承諾制的行政許可事項,如會計師事務所及其分支機構設立審批,采取簡化辦事流程、公開辦事程序的辦法。

    一位直轄市工商部門行政許可處負責人告訴記者,“證照分離”改革的好處顯而易見,大家對試點都有積極性,但必須聽從指揮。

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