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Opinions of the State Council on Accelerating the Development of Tourism Industry
[Effective]
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国务院关于加快发展旅游业的意见
[现行有效]
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【法宝引证码】
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Opinions of the State Council on Accelerating the Development of Tourism Industry
(No. 41 [2009] of the State Council)
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government, all ministries and commissions of the State Council and all institutions directly under the State Council,
The tourism industry is a strategic industry with low consumption of resources, good promoting coefficient, plenty job opportunities and sound comprehensive benefits. Since the reform and opening to the outside world, Chinese tourism industry has been developing rapidly, the industrial scale has been expanding incessantly and the industrial system is becoming more and more perfect. At present, China is at the rapid development stage towards industrialization and urbanization. The increasingly popular and diversified consumption demands provide new opportunities for the development of the tourism industry. In order to give full play to the tourism industry's positive roles in ensuring the growth, boosting the domestic demands and adjusting the structure, we hereby put forward the following opinions on accelerating the development of tourism industry:
| | 国务院关于加快发展旅游业的意见
（国发〔2009〕41号）
各省、自治区、直辖市人民政府，国务院各部委、各直属机构：
旅游业是战略性产业，资源消耗低，带动系数大，就业机会多，综合效益好。改革开放以来，我国旅游业快速发展，产业规模不断扩大，产业体系日趋完善。当前我国正处于工业化、城镇化快速发展时期，日益增长的大众化、多样化消费需求为旅游业发展提供了新的机遇。为充分发挥旅游业在保增长、扩内需、调结构等方面的积极作用，现就加快发展旅游业提出如下意见：
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I. Overall requirements
| | 一、总体要求
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1. Guiding thought. We should take Deng Xiaoping Theory and the important thought of Three Represents as our guide, thoroughly apply the Scientific Outlook on Development, further emancipate our minds, deepen the reform and opening-up, strengthen overall planning and coordination, change the development form and improve the development quality so as to make the tourism industry a strategic backbone industry of the national economy and make it a more satisfactory modern service industry to the people.
| | （一）指导思想。以邓小平理论和“三个代表”重要思想为指导，深入贯彻落实科学发展观，进一步解放思想，深化改革开放，加强统筹协调，转变发展方式，提升发展质量，把旅游业培育成国民经济的战略性支柱产业和人民群众更加满意的现代服务业。
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2. Basic principles. We should adhere to the reform and opening to the outside world, eliminate obstacles embedded in systems and mechanisms, give full play to the fundamental role of the market-allocated resources, follow the development path of strengthening the inner attributes, realize the unity of speed, structure, quality and benefits. We should stick to the principle of “people first and safety first”, combine the administration with the services and incessantly satisfy the increasing tourism consumption demands of the people. We should adhere to focusing on the domestic tourism, actively develop the inward tourism and develop the outward tourism in an orderly manner. We should stick to adjusting measures to local conditions, give prominence to the advantages and push forward the development of the tourism industry with local characteristics at all places. We should insist on the conservation of energy and the protection of environment and reasonably utilize the resources so as to realize the sustainable development of the tourism industry.
| | （二）基本原则。坚持改革开放，破除体制机制性障碍，充分发挥市场配置资源的基础性作用，走内涵式发展道路，实现速度、结构、质量、效益相统一；坚持以人为本，安全第一，寓管理于服务之中，不断满足人民群众日益增长的旅游消费需求；坚持以国内旅游为重点，积极发展入境旅游，有序发展出境旅游；坚持因地制宜，突出优势，推动各地旅游业特色化发展；坚持节能环保，合理利用资源，实现旅游业可持续发展。
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3. Development goals. By 2015, the tourism market scale will be further expanded, the number of domestic tourists will reach 3.3 billion with an average year-on-year growth rate of 10%, and the number of inward overnight tourists will reach 90 million with an average year-on-year growth rate of 8%, and the number of outward tourists will reach 83 million with an average year-on-year growth rate of 9%. The tourism consumption will be increased stably, the average number of tours by urban and rural residents exceeds 2 and the tourism consumption accounts for 10% of the residents' total consumption. The economic and social benefits become more evident, the average year-on-year growth rate of total revenue of the tourism industry will be 12% or higher, the percentage of added value of tourism in the national GDP will be increased to 4.5% and will account for 12% of the added value of the service industry. There will be 500, 000 new tourism job opportunities created every year. The tourism service quality will be improved evidently, the market order will become increasingly better and the sustainable development capacity of the tourism industry will be conspicuously enhanced. We should strive to realize the goal that by 2020 the scale, quality and benefits of Chinese tourism industry can approximately reach the average level of the top tourist countries in the world.
| | （三）发展目标。到2015年，旅游市场规模进一步扩大，国内旅游人数达33亿人次，年均增长10%；入境过夜游客人数达9000万人次，年均增长8%；出境旅游人数达8300万人次，年均增长9%。旅游消费稳步增长，城乡居民年均出游超过2次，旅游消费相当于居民消费总量的10%。经济社会效益更加明显，旅游业总收入年均增长12%以上，旅游业增加值占全国GDP的比重提高到4.5%，占服务业增加值的比重达到12%。每年新增旅游就业50万人。旅游服务质量明显提高，市场秩序明显好转，可持续发展能力明显增强，力争到2020年我国旅游产业规模、质量、效益基本达到世界旅游强国水平。
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II. Main tasks
| | 二、主要任务
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4. To deepen the reform of tourism industry and open wider to the outside world. We should lower the tourism market threshold, eliminate the industrial and regional obstacles, simplify the examination and approval formalities, encourage non-public capital to fairly participate in the development of the tourism industry and encourage enterprises in various forms of ownership to invest in the tourism industry according to law. We should propel the reorganization and restructuring of the state-owned tourism enterprises, support the development of private enterprises and small and medium tourism enterprises, and support the merger and reorganization of various enterprises across different industries, different regions and different forms of ownership so as to foster a batch of large competitive tourism enterprise groups. We should actively absorb foreign-funded tourism enterprises, and, on the basis of pilot work, gradually allow foreign-funded travel agencies to engage in the business of Chinese residents' outward tourism. We encourage qualified tourism enterprises to “go global”. We should, under the requirement for overall planning and coordination and for forming concerted efforts, make innovations on the system and mechanisms and push forward the reform of the system of administration of tourism. We encourage all places to carry out the comprehensive reform of tourism and special reform pilots and encourage qualified places to explore the administration based on the integration of tourism resources. The tourism administrative departments and the relevant departments should accelerate the shift of functions and shift to the enterprises, industrial associations and intermediary agencies the functions which should be undertaken by them, as well as the working bodies. Within 5 years, the personnel and the financial relationship of various tourism industrial associations at all levels must be separated from those of the tourism administrative departments, etc.
| | （四）深化旅游业改革开放。放宽旅游市场准入，打破行业、地区壁垒，简化审批手续，鼓励社会资本公平参与旅游业发展，鼓励各种所有制企业依法投资旅游产业。推进国有旅游企业改组改制，支持民营和中小旅游企业发展，支持各类企业跨行业、跨地区、跨所有制兼并重组，培育一批具有竞争力的大型旅游企业集团。积极引进外资旅游企业。在试点的基础上，逐步对外商投资旅行社开放经营中国公民出境旅游业务。支持有条件的旅游企业“走出去”。要按照统筹协调、形成合力的要求，创新体制机制，推进旅游管理体制改革。支持各地开展旅游综合改革和专项改革试点，鼓励有条件的地方探索旅游资源一体化管理。旅游行政管理及相关部门要加快职能转变，把应当由企业、行业协会和中介组织承担的职能和机构转移出去。五年内，各级各类旅游行业协会的人员和财务关系要与旅游行政管理等部门脱钩。
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5. To optimize the tourism consumption environment. We should gradually establish a destination evaluation mechanism focusing on the comments of tourists. We should announce to the general public any adjustment to the entry ticket price for scenic areas half a year in advance and should announce all travel fees to the general public under relevant provisions. We should, in an all-around manner, implement the preferential policies on the senior, students and other special groups of people in respect of entry tickets for scenic areas. We will increase the airlines, flights and tourist trains between the destinations and the places of main sources of tourists and improve the measures for the presale and non-local purchase of tickets of passenger trains. The urban public service networks shall be gradually extended to the surrounding major scenic areas and rural tourist attractions and the highway service areas shall launch the tourism service function. We should further improve the self-driving tourism service system and regulate the self-motivated travelling activities. The museums, financial service outlets, postal service outlets, etc. should properly prolong the working and service hours at the tourism season. The public restrooms at all commercial premises should be available to tourists. We should establish a sound tourism information service platform and promote the sharing of tourism information resources. The radio, TV, newspapers and periodicals, websites and other public media should actively launch tourism columns and intensify the publicity of tourism for public good.
| | （五）优化旅游消费环境。逐步建立以游客评价为主的旅游目的地评价机制。景区门票价格调整要提前半年向社会公布，所有旅游收费均应按规定向社会公示。全面落实旅游景区对老年人和学生等特殊人群门票优惠政策。增加旅游目的地与主要客源地间的航线航班、旅游列车，完善旅客列车车票的预售和异地购票办法。城市公交服务网络要逐步延伸到周边主要景区和乡村旅游点，公路服务区要拓展旅游服务功能。进一步完善自驾车旅游服务体系。规范引导自发性旅游活动。博物馆、金融服务网点、邮政服务网点等在旅游旺季应适当延长开放和服务时间。各类经营场所的公用厕所要对游客开放。建立健全旅游信息服务平台，促进旅游信息资源共享。广播、电视、报刊、网站等公共媒体要积极开设旅游栏目，加大旅游公益宣传力度。
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6. To advocate civilized and healthy forms of tourism. We should vigorously advocate healthy, civilized and green forms of tourism so that the urban and rural residents may get more knowledge, broaden their vision and edify their minds in travelling activities. The scenic areas and spots, hotels and restaurants, travel agencies and other tourism enterprises should, through various means, direct each tourist to travel and consume consciously in a civilized manner under the Tourism Etiquette Rules for Chinese Citizens Traveling at Home and Tourism Etiquette Rules for Chinese Citizens Traveling Abroad. The tourists should respect the nature, local culture and service providers, resist the bad customs and get rid of bad behaviors. Tourists travelling abroad should maintain a good image and act as envoys spreading the Chinese culture.
| | （六）倡导文明健康的旅游方式。在全社会大力倡导健康旅游、文明旅游、绿色旅游，使城乡居民在旅游活动中增长知识、开阔视野、陶冶情操。景区景点、宾馆饭店和旅行社等旅游企业要通过多种形式，引导每一位旅游者自觉按照《中国公民国内旅游文明行为公约》和《中国公民出境旅游文明行为指南》文明出行、文明消费。旅游者要尊重自然，尊重当地文化，尊重服务者，抵制不良风气，摒弃不文明行为。出境旅游者要维护良好的对外形象，做传播中华文明的使者。
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7. To speed up the infrastructure construction for tourism. We need to focus on the construction of tourism roads, parking lots in scenic areas, tourist service centers, the infrastructure on tourism safety, resource and environment protection and other infrastructure. We will execute the projects on the rebuilding or expanding of tourism restrooms. We shall focus on the construction of tourism roads connecting the main scenic areas and the traffic trunk roads. We should take full account of the development and demands of tourism when making plans on the construction of waterway passenger transport docks. We should accelerate the construction of regional airports of central and western China and improve the network of tourist airlines. We should ensure the smooth communications in the scenic areas and along the traffic routes. We should intensify the construction of urban tourist distribution centers. We will strive to take five years to realize the goal that the traffic in all Level A scenic areas is basically smooth, that the system of tourism signs is basically perfect, that the restrooms for tourists basically meet the relevant requirements and that the parking lots in scenic areas can basically meet the demands.
．．．．．． | | （七）加快旅游基础设施建设。重点建设旅游道路、景区停车场、游客服务中心、旅游安全以及资源环境保护等基础设施。实施旅游厕所改扩建工程。加强主要景区连接交通干线的旅游公路建设。规划建设水路客运码头要充分考虑旅游业发展需求。加快推进中西部支线机场建设，完善旅游航线网络。确保景区和交通沿线通信顺畅。加强重点城市游客集散中心建设。力争通过五年努力，全国所有A级景区旅游交通基本畅通，旅游标识系统基本完善，旅游厕所基本达标，景区停车场基本满足需要。
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