國(guo)務(wu)院辦公廳(ting)關于深化農村公路

管理養護(hu)體制改(gai)革的意見(jian)

國辦發(fa)〔2019〕45號

各省、自治(zhi)區、直轄(xia)市(shi)人民政府，國務院各部委、各直屬機構(gou)：

農(nong)村公路是服(fu)務“三農(nong)”的公益性基礎(chu)設施，是打(da)贏脫(tuo)貧攻堅戰、實(shi)施鄉(xiang)村振興戰略的重要抓(zhua)手。黨的十八大(da)以(yi)來，以(yi)習近平同志為(wei)核心的黨中央高度(du)重視農(nong)村公路工作，多(duo)次對“四(si)好(hao)農(nong)村路”建(jian)設作出(chu)重要部署。為(wei)切實(shi)解決“四(si)好(hao)農(nong)村路”工作中管好(hao)、護好(hao)的短板問題，加(jia)快(kuai)建(jian)立農(nong)村公路管理(li)養護長效(xiao)機制(zhi)，經國務院同意，現就深(shen)化農(nong)村公路管理(li)養護體制(zhi)改(gai)革提(ti)出(chu)以(yi)下意見：

一(yi)、總體要求

以(yi)習近(jin)平新時代中國特(te)色(se)社會主義(yi)思想為指導，全面(mian)(mian)貫徹黨的(de)十九大精(jing)神，認真落(luo)實(shi)習近(jin)平總書記關于“四好(hao)農(nong)(nong)村(cun)路(lu)”的(de)重(zhong)要指示精(jing)神和黨中央、國務(wu)院決策部署，踐行以(yi)人民(min)為中心的(de)發(fa)展(zhan)思想，緊(jin)緊(jin)圍(wei)繞打(da)贏脫貧攻(gong)堅戰、實(shi)施鄉村(cun)振興戰略和統籌(chou)城(cheng)鄉發(fa)展(zhan)，以(yi)質(zhi)(zhi)量(liang)為本、安全至上、自然(ran)和諧、綠色(se)發(fa)展(zhan)為原則，深(shen)化農(nong)(nong)村(cun)公(gong)路(lu)管理養護體制(zhi)改革，加(jia)(jia)強農(nong)(nong)村(cun)公(gong)路(lu)與農(nong)(nong)村(cun)經濟社會發(fa)展(zhan)統籌(chou)協(xie)調(diao)，形成上下(xia)聯動、密切配合、齊(qi)抓共管的(de)工作(zuo)局面(mian)(mian)，推動“四好(hao)農(nong)(nong)村(cun)路(lu)”高質(zhi)(zhi)量(liang)發(fa)展(zhan)，為廣大農(nong)(nong)民(min)群眾致富奔小(xiao)康、加(jia)(jia)快推進農(nong)(nong)業農(nong)(nong)村(cun)現代化提供更好(hao)保障。

二、工作目(mu)標

到2022年，基本建立權責清晰(xi)、齊抓共管的(de)農(nong)村公(gong)(gong)路(lu)管理養護體(ti)制機(ji)制，形(xing)成(cheng)財政投入職(zhi)責明(ming)確、社會力(li)量(liang)積極(ji)參與的(de)格局。農(nong)村公(gong)(gong)路(lu)治(zhi)理能力(li)明(ming)顯(xian)提(ti)高，治(zhi)理體(ti)系初步形(xing)成(cheng)。農(nong)村公(gong)(gong)路(lu)通行條件和路(lu)域環境(jing)明(ming)顯(xian)提(ti)升，交通保障能力(li)顯(xian)著增強。農(nong)村公(gong)(gong)路(lu)列養率達(da)到100%，年均養護工(gong)程(cheng)比例不低于(yu)(yu)5%，中等及以上(shang)農(nong)村公(gong)(gong)路(lu)占(zhan)比不低于(yu)(yu)75%。

到2035年，全面(mian)建成體(ti)系完備(bei)、運轉(zhuan)高效的農(nong)村(cun)公(gong)路(lu)管理(li)養(yang)護體(ti)制(zhi)機制(zhi)，基本(ben)實現城鄉公(gong)路(lu)交通基本(ben)公(gong)共服務均等化，路(lu)況水平和路(lu)域環境根本(ben)性好轉(zhuan)，農(nong)村(cun)公(gong)路(lu)治理(li)能力全面(mian)提高，治理(li)體(ti)系全面(mian)完善。

三、完(wan)善(shan)農村公路(lu)管理養護體制(zhi)

（一）省、市級人(ren)民政府(fu)加強統籌和指導(dao)監(jian)督。省級(ji)人(ren)(ren)民(min)政(zheng)府(fu)要制(zhi)定相關(guan)部門和市(shi)(shi)、縣級(ji)人(ren)(ren)民(min)政(zheng)府(fu)農村公路管理(li)養(yang)護(hu)權力和責任清單，強化省級(ji)統籌和政(zheng)策(ce)(ce)引導，建立(li)健全規(gui)章(zhang)制(zhi)度，籌集養(yang)護(hu)補助資(zi)金(jin)(jin)，加強養(yang)護(hu)管理(li)機構能(neng)力建設(she)指導，對(dui)市(shi)(shi)、縣級(ji)人(ren)(ren)民(min)政(zheng)府(fu)進行績效管理(li)。市(shi)(shi)級(ji)人(ren)(ren)民(min)政(zheng)府(fu)要發揮好承上啟(qi)下作用，完善支持政(zheng)策(ce)(ce)和養(yang)護(hu)資(zi)金(jin)(jin)補助機制(zhi)，加強指導監督(du)。

（二）縣級人民政府履行主體(ti)責任(ren)。縣(xian)級(ji)(ji)(ji)人民(min)政(zheng)府要(yao)按照“縣(xian)道縣(xian)管(guan)(guan)、鄉村道鄉村管(guan)(guan)”的(de)原則，建(jian)立健全(quan)農村公(gong)路(lu)(lu)(lu)(lu)(lu)管(guan)(guan)理(li)(li)養(yang)護責任(ren)制(zhi)，明確相關(guan)部門、鄉級(ji)(ji)(ji)人民(min)政(zheng)府農村公(gong)路(lu)(lu)(lu)(lu)(lu)管(guan)(guan)理(li)(li)養(yang)護權力(li)和(he)責任(ren)清單，并指導監督相關(guan)部門和(he)鄉級(ji)(ji)(ji)人民(min)政(zheng)府履職盡責。大力(li)推廣縣(xian)、鄉、村三(san)級(ji)(ji)(ji)路(lu)(lu)(lu)(lu)(lu)長(chang)(chang)制(zhi)，各級(ji)(ji)(ji)路(lu)(lu)(lu)(lu)(lu)長(chang)(chang)負責相應農村公(gong)路(lu)(lu)(lu)(lu)(lu)管(guan)(guan)理(li)(li)養(yang)護工作，建(jian)立“精干高效、專(zhuan)(zhuan)兼結合、以專(zhuan)(zhuan)為主”的(de)管(guan)(guan)理(li)(li)體系。按照“有路(lu)(lu)(lu)(lu)(lu)必養(yang)、養(yang)必到(dao)位(wei)”的(de)要(yao)求，將農村公(gong)路(lu)(lu)(lu)(lu)(lu)養(yang)護資金及管(guan)(guan)理(li)(li)機構運行(xing)經費和(he)人員支出(chu)納入一般公(gong)共(gong)財(cai)政(zheng)預算，加大履職能(neng)力(li)建(jian)設和(he)管(guan)(guan)理(li)(li)養(yang)護投入力(li)度。

（三）發揮鄉村兩級作用和農民群眾積(ji)極(ji)性。鄉級人民(min)(min)政府要確(que)定專職(zhi)工(gong)(gong)作人員，指導村(cun)民(min)(min)委員會(hui)(hui)組(zu)(zu)織(zhi)好村(cun)道管(guan)理養護(hu)(hu)工(gong)(gong)作。村(cun)民(min)(min)委員會(hui)(hui)要按照“農(nong)(nong)民(min)(min)自(zi)愿、民(min)(min)主(zhu)(zhu)決策”的原則，采取一(yi)事(shi)一(yi)議、以(yi)工(gong)(gong)代(dai)(dai)賑等(deng)辦法組(zu)(zu)織(zhi)村(cun)道的管(guan)理養護(hu)(hu)工(gong)(gong)作。要加強宣(xuan)傳引導，將愛路護(hu)(hu)路要求納(na)入鄉規(gui)民(min)(min)約、村(cun)規(gui)民(min)(min)約；鼓勵(li)采用以(yi)獎(jiang)代(dai)(dai)補等(deng)方式(shi)，推廣將日常養護(hu)(hu)與(yu)應(ying)急搶通(tong)捆綁實施并(bing)交由農(nong)(nong)民(min)(min)承包；鼓勵(li)農(nong)(nong)村(cun)集體經濟(ji)組(zu)(zu)織(zhi)和(he)社會(hui)(hui)力量自(zi)主(zhu)(zhu)籌資籌勞(lao)參與(yu)農(nong)(nong)村(cun)公路管(guan)理養護(hu)(hu)工(gong)(gong)作，通(tong)過將農(nong)(nong)村(cun)公路管(guan)理養護(hu)(hu)納(na)入公益崗位(wei)等(deng)方式(shi)，為貧困戶提供就業機會(hui)(hui)。

四(si)、強化(hua)農村公路(lu)管理養護資金保障

（四）落實成品油稅費改革資(zi)金。完善成品油(you)(you)稅費(fei)(fei)(fei)(fei)(fei)(fei)改革(ge)轉(zhuan)移支(zhi)付政(zheng)策，合理(li)確定轉(zhuan)移支(zhi)付規模，加(jia)(jia)大對(dui)普通公(gong)(gong)(gong)路(lu)養(yang)護(hu)的支(zhi)持力度。成品油(you)(you)稅費(fei)(fei)(fei)(fei)(fei)(fei)改革(ge)新增收(shou)(shou)入替(ti)代(dai)原公(gong)(gong)(gong)路(lu)養(yang)路(lu)費(fei)(fei)(fei)(fei)(fei)(fei)部(bu)分(fen)(fen)，不(bu)(bu)(bu)得(de)(de)低(di)(di)(di)于改革(ge)基(ji)期年（2009年）公(gong)(gong)(gong)路(lu)養(yang)路(lu)費(fei)(fei)(fei)(fei)(fei)(fei)收(shou)(shou)入占“六費(fei)(fei)(fei)(fei)(fei)(fei)”（公(gong)(gong)(gong)路(lu)養(yang)路(lu)費(fei)(fei)(fei)(fei)(fei)(fei)、航(hang)道養(yang)護(hu)費(fei)(fei)(fei)(fei)(fei)(fei)、公(gong)(gong)(gong)路(lu)運輸管理(li)費(fei)(fei)(fei)(fei)(fei)(fei)、公(gong)(gong)(gong)路(lu)客貨運附加(jia)(jia)費(fei)(fei)(fei)(fei)(fei)(fei)、水路(lu)運輸管理(li)費(fei)(fei)(fei)(fei)(fei)(fei)、水運客貨運附加(jia)(jia)費(fei)(fei)(fei)(fei)(fei)(fei)）收(shou)(shou)入的比例(li)(li)。成品油(you)(you)稅費(fei)(fei)(fei)(fei)(fei)(fei)改革(ge)轉(zhuan)移支(zhi)付用于普通公(gong)(gong)(gong)路(lu)養(yang)護(hu)的比例(li)(li)一(yi)般不(bu)(bu)(bu)得(de)(de)低(di)(di)(di)于80%且不(bu)(bu)(bu)得(de)(de)用于公(gong)(gong)(gong)路(lu)新建。2022年起(qi)，該項資金不(bu)(bu)(bu)再列(lie)支(zhi)管理(li)機構運行(xing)(xing)經費(fei)(fei)(fei)(fei)(fei)(fei)和(he)人員等其他支(zhi)出(chu)。繼續執行(xing)(xing)省級人民(min)政(zheng)府對(dui)農村公(gong)(gong)(gong)路(lu)養(yang)護(hu)工程(cheng)的補助政(zheng)策，省級補助資金與(yu)切塊到(dao)市縣部(bu)分(fen)(fen)之(zhi)和(he)占成品油(you)(you)稅費(fei)(fei)(fei)(fei)(fei)(fei)改革(ge)新增收(shou)(shou)入替(ti)代(dai)原公(gong)(gong)(gong)路(lu)養(yang)路(lu)費(fei)(fei)(fei)(fei)(fei)(fei)部(bu)分(fen)(fen)的比例(li)(li)不(bu)(bu)(bu)得(de)(de)低(di)(di)(di)于15%，實際高于上(shang)述比例(li)(li)的不(bu)(bu)(bu)得(de)(de)再降低(di)(di)(di)。

（五）加大財(cai)政(zheng)資金支持(chi)力度。農(nong)(nong)(nong)村公(gong)(gong)(gong)路養護(hu)(hu)(hu)屬(shu)于(yu)(yu)地(di)方(fang)(fang)財(cai)政(zheng)(zheng)(zheng)事權，資(zi)金原則上(shang)由地(di)方(fang)(fang)通過(guo)自有財(cai)力(li)安排，對縣(xian)(xian)級(ji)人民(min)政(zheng)(zheng)(zheng)府(fu)落(luo)實支(zhi)出責任(ren)存在的(de)(de)收(shou)支(zhi)缺(que)口，上(shang)級(ji)人民(min)政(zheng)(zheng)(zheng)府(fu)可根(gen)據不(bu)同時(shi)期發展(zhan)目標給予一(yi)定的(de)(de)資(zi)金支(zhi)持。中央在均(jun)衡性(xing)轉移(yi)支(zhi)付中將(jiang)進一(yi)步考慮農(nong)(nong)(nong)村公(gong)(gong)(gong)路管理養護(hu)(hu)(hu)因素(su)(su)，加大對重點貧(pin)困(kun)地(di)區(qu)支(zhi)持力(li)度，繼續安排車購稅(shui)(shui)資(zi)金支(zhi)持農(nong)(nong)(nong)村公(gong)(gong)(gong)路升級(ji)改造、安全生命防護(hu)(hu)(hu)工程建設(she)和危橋改造等(deng)。地(di)方(fang)(fang)各(ge)級(ji)人民(min)政(zheng)(zheng)(zheng)府(fu)要確(que)保財(cai)政(zheng)(zheng)(zheng)支(zhi)出責任(ren)落(luo)實到位，將(jiang)相關稅(shui)(shui)收(shou)返(fan)還用于(yu)(yu)農(nong)(nong)(nong)村公(gong)(gong)(gong)路養護(hu)(hu)(hu)。省(sheng)、市、縣(xian)(xian)三級(ji)公(gong)(gong)(gong)共財(cai)政(zheng)(zheng)(zheng)資(zi)金用于(yu)(yu)農(nong)(nong)(nong)村公(gong)(gong)(gong)路日(ri)常(chang)養護(hu)(hu)(hu)的(de)(de)總額不(bu)得低于(yu)(yu)以下標準(zhun)：縣(xian)(xian)道每(mei)年(nian)每(mei)公(gong)(gong)(gong)里(li)10000元，鄉道每(mei)年(nian)每(mei)公(gong)(gong)(gong)里(li)5000元，村道每(mei)年(nian)每(mei)公(gong)(gong)(gong)里(li)3000元，省(sheng)、市、縣(xian)(xian)三級(ji)公(gong)(gong)(gong)共財(cai)政(zheng)(zheng)(zheng)投入比(bi)例由各(ge)省(sheng)（區(qu)、市）根(gen)據本地(di)區(qu)實際情(qing)況確(que)定，并建立與養護(hu)(hu)(hu)成本變化等(deng)因素(su)(su)相關聯的(de)(de)動(dong)態調整機制。

（六）強化養護資金使用監(jian)督管理。財政(zheng)(zheng)(zheng)部(bu)(bu)、交通運輸部(bu)(bu)要(yao)(yao)建立對(dui)(dui)(dui)省級(ji)人民政(zheng)(zheng)(zheng)府的(de)農村(cun)(cun)公(gong)(gong)路管(guan)(guan)理養(yang)護考核(he)機制，將(jiang)考核(he)結(jie)果與相關(guan)投資(zi)(zi)掛鉤。對(dui)(dui)(dui)地(di)方(fang)各級(ji)公(gong)(gong)共財政(zheng)(zheng)(zheng)用(yong)于農村(cun)(cun)公(gong)(gong)路養(yang)護的(de)資(zi)(zi)金(jin)實施(shi)全過(guo)程(cheng)預算績效管(guan)(guan)理，確保及時足(zu)額撥付到位。地(di)方(fang)各級(ji)財政(zheng)(zheng)(zheng)和交通運輸主(zhu)管(guan)(guan)部(bu)(bu)門要(yao)(yao)加強農村(cun)(cun)公(gong)(gong)路養(yang)護資(zi)(zi)金(jin)使用(yong)監管(guan)(guan)，嚴(yan)禁農村(cun)(cun)公(gong)(gong)路建設(she)采(cai)用(yong)施(shi)工方(fang)帶資(zi)(zi)的(de)建設(she)—移交（BT）模式(shi)，嚴(yan)禁地(di)方(fang)以(yi)“建養(yang)一體化”名義新增隱性債務(wu)，公(gong)(gong)共資(zi)(zi)金(jin)使用(yong)情況要(yao)(yao)按有關(guan)規定對(dui)(dui)(dui)社會公(gong)(gong)開，接受(shou)群眾監督。村(cun)(cun)務(wu)監督委(wei)員會要(yao)(yao)將(jiang)村(cun)(cun)道養(yang)護資(zi)(zi)金(jin)使用(yong)和養(yang)護質(zhi)量等情況納入監督范圍(wei)。審計部(bu)(bu)門要(yao)(yao)定期對(dui)(dui)(dui)農村(cun)(cun)公(gong)(gong)路養(yang)護資(zi)(zi)金(jin)使用(yong)情況進行審計。

（七）創新農村公路發展(zhan)投融資機(ji)制。地(di)方(fang)各級(ji)人民(min)政(zheng)府(fu)要(yao)發(fa)揮政(zheng)府(fu)資(zi)金(jin)(jin)的(de)引導作用(yong)，采取資(zi)金(jin)(jin)補(bu)助(zhu)、先養(yang)后補(bu)、以獎代補(bu)、無償提供料(liao)場(chang)等多種(zhong)方(fang)式支(zhi)持(chi)農(nong)(nong)(nong)村(cun)公(gong)(gong)路養(yang)護(hu)。將農(nong)(nong)(nong)村(cun)公(gong)(gong)路發(fa)展納入地(di)方(fang)政(zheng)府(fu)一(yi)般(ban)債(zhai)(zhai)券(quan)支(zhi)持(chi)范圍(wei)。鼓(gu)勵(li)地(di)方(fang)人民(min)政(zheng)府(fu)將農(nong)(nong)(nong)村(cun)公(gong)(gong)路建設和一(yi)定時(shi)期(qi)的(de)養(yang)護(hu)進(jin)行(xing)(xing)捆綁招(zhao)標，將農(nong)(nong)(nong)村(cun)公(gong)(gong)路與(yu)產業、園(yuan)區、鄉(xiang)村(cun)旅游等經營(ying)性項目實行(xing)(xing)一(yi)體化開發(fa)，運營(ying)收益用(yong)于農(nong)(nong)(nong)村(cun)公(gong)(gong)路養(yang)護(hu)。鼓(gu)勵(li)保(bao)(bao)險資(zi)金(jin)(jin)通過(guo)購買地(di)方(fang)政(zheng)府(fu)一(yi)般(ban)債(zhai)(zhai)券(quan)方(fang)式合法合規(gui)參(can)與(yu)農(nong)(nong)(nong)村(cun)公(gong)(gong)路發(fa)展，探(tan)索開展農(nong)(nong)(nong)村(cun)公(gong)(gong)路災毀(hui)保(bao)(bao)險。

五、建立農村公路管理養護長效機制

（八）加快推進(jin)農村公(gong)路養(yang)護(hu)市(shi)場化改革。將人民(min)群眾(zhong)滿意(yi)度和受(shou)益程度、養(yang)(yang)(yang)護(hu)質量和資金使用效率作(zuo)為衡(heng)量標準(zhun)，分(fen)類(lei)有(you)序推(tui)進農(nong)(nong)村(cun)公路養(yang)(yang)(yang)護(hu)市(shi)(shi)場化改(gai)革，逐步建立政(zheng)府(fu)與(yu)市(shi)(shi)場合(he)理(li)分(fen)工(gong)的養(yang)(yang)(yang)護(hu)生(sheng)產組織模式。引導(dao)符合(he)市(shi)(shi)場屬性(xing)的事業單位轉(zhuan)制為現代(dai)企(qi)業，鼓勵(li)將干線公路建設養(yang)(yang)(yang)護(hu)與(yu)農(nong)(nong)村(cun)公路捆綁招(zhao)標，支持(chi)養(yang)(yang)(yang)護(hu)企(qi)業跨區域參(can)與(yu)市(shi)(shi)場競爭。鼓勵(li)通過簽訂長期養(yang)(yang)(yang)護(hu)合(he)同(tong)、招(zhao)投(tou)(tou)標約定等方式，引導(dao)專業養(yang)(yang)(yang)護(hu)企(qi)業加大投(tou)(tou)入(ru)，提高養(yang)(yang)(yang)護(hu)機(ji)械化水平。

（九(jiu)）加強(qiang)安全和信(xin)用(yong)管理(li)。公(gong)路(lu)安(an)全設施(shi)(shi)(shi)要(yao)與主體工(gong)程(cheng)同時設計、同時施(shi)(shi)(shi)工(gong)、同時投入使(shi)用，縣級人(ren)民(min)政府(fu)要(yao)組織(zhi)公(gong)安(an)、應急等職能部門參與農(nong)村公(gong)路(lu)竣（交）工(gong)驗收。已建成(cheng)但未(wei)配套安(an)全設施(shi)(shi)(shi)的(de)農(nong)村公(gong)路(lu)要(yao)逐步(bu)完善。加強(qiang)農(nong)村公(gong)路(lu)養護市場監管，著(zhu)力建立以質量為核(he)心(xin)的(de)信(xin)(xin)用評價機(ji)制(zhi)，實施(shi)(shi)(shi)守信(xin)(xin)聯(lian)(lian)合激(ji)勵(li)和(he)失信(xin)(xin)聯(lian)(lian)合懲戒，并將信(xin)(xin)用記錄按照國(guo)家有關規(gui)定納入全國(guo)信(xin)(xin)用信(xin)(xin)息共享平臺，依法向社會(hui)公(gong)開(kai)。

（十）強(qiang)化法規政(zheng)策和隊伍建設。推(tui)動公路(lu)(lu)法修訂，研究制定農村公路(lu)(lu)條例，探索通過民(min)事(shi)賠(pei)償(chang)保護(hu)(hu)路(lu)(lu)產路(lu)(lu)權。堅持(chi)經濟實用、綠色環保理念，全面開展“美(mei)麗公路(lu)(lu)”創建(jian)工(gong)作，提高農村公路(lu)(lu)養護(hu)(hu)技術，完(wan)善路(lu)(lu)政(zheng)管理指導體系，建(jian)立縣(xian)有路(lu)(lu)政(zheng)員、鄉有監(jian)管員、村有護(hu)(hu)路(lu)(lu)員的路(lu)(lu)產路(lu)(lu)權保護(hu)(hu)隊伍。

各(ge)地(di)區(qu)、各(ge)部門(men)要(yao)將深化(hua)農村公(gong)路管理養護體(ti)制改革作(zuo)為(wei)打贏脫(tuo)貧攻堅戰、實(shi)(shi)施(shi)鄉村振(zhen)興戰略(lve)、推(tui)進農業農村現代化(hua)的一項先行工(gong)程，同步部署落實(shi)(shi)。各(ge)省級(ji)人(ren)民政(zheng)府(fu)要(yao)加強(qiang)統籌和指導，制定(ding)本轄區(qu)改革實(shi)(shi)施(shi)方案，協調解決重大(da)問題，督(du)促(cu)地(di)方各(ge)級(ji)人(ren)民政(zheng)府(fu)壓(ya)實(shi)(shi)責(ze)任，認真抓好任務落實(shi)(shi)。各(ge)有關(guan)部門(men)要(yao)密切配合，按照職責(ze)完成各(ge)項任務。交通(tong)運(yun)輸部要(yao)加強(qiang)工(gong)作(zuo)指導和督(du)促(cu)檢查，重大(da)情(qing)況及時報告國務院。

本意見自印(yin)發(fa)之日起施(shi)行。《國(guo)務院辦(ban)公(gong)廳關于印(yin)發(fa)農(nong)村(cun)公(gong)路管理(li)養護體制改革方案的通知》（國(guo)辦(ban)發(fa)〔2005〕49號(hao)）同時(shi)廢止。

國(guo)務院辦公廳          

2019年(nian)9月5日