预防道路交通事故的三大环节
陈长明
当前道路交通管理的基本目标是：“秩序好，事故少，人民群众满意”。要达到“事故少”这一目标，就必须千方百计、想方设法地去预防道路交通事故。所以，预防道路交通事故就成为现在各级人民政府和各级公安交通管理部门的一个永久的课题。长期以来，对于怎样才能有效地预防道路交通事故，从专家学者、各级领导，到普通民众、交通警察，各有看法，各有见解，可谓是仁者见仁、智者见智。笔者从事道路交通管理工作近二十年，从二十年的工作经历来看，笔者认为，要有效地预防交通事故，必须抓住以下三个大的环节：
环节之一：全力提高全民的交通法制观念和交通安全意识
“交通连着千万家，安全畅通靠大家”，这是一句非常浅显、非常实在的交通安全警示语，它用简朴的语言道出了交通安全从何而来的深刻的内涵。交通安全从何而来？就是从全民的交通法制观念的提高和交通安全意识的增强而来。那么，如何提高全民的交通法制观念、增强全民的交通安全意识呢？笔者认为，公安部正在大力倡导和全力推行的“五进”活动就是一个很好的载体，紧紧抓住“五进”活动，扎扎实实地开展多层面、多形式的交通安全宣传教育，在全社会营造一个浓厚的交通安全宣传氛围，让这个氛围来感染人、教育人。同时。我们还要结合“五进”活动，有侧重性、针对性地抓好日常的交通安全宣传教育工作。
一是抓住学校，开展中小学生交通安全宣传工作。中小学生在校人数众多，而且参预交通活动频繁。我们要抓住中小学生求知欲望强烈，接受新知识、新观念快，可塑性强的特点，用大量的事故案例来诠释交通安全法律、法规，传授交通安全常识。让中小学生在校园、在家庭、在社会活动中能自觉规范自己的交通行为，并以此影响其家人、邻居和亲朋，达到以点连线、以线连片，以片连面的宣传效果。
二是抓住机关，在公务员队伍中开展交通安全宣传教育工作。机关公务员相对而言综合素质较高，一般都比较注重个人在社会上的形象，针对这一点特点，公安交通管理部门应该利用一切可以利用的机会，如在一些机关内部布置宣传图板，用直观的形式向他们传送交通，安全的有关信息，或者争取一些机关领导的支持，利用机关会议的会头会尾十分钟，通报交通安全形势，讲解交通法律知识，利用公务员接触面广、号召力强的优势来推动我们的交通安全宣传教育工作。
三是抓住农民，在农村开展交通安全宣传教育工作。我国是一个农业大国，农民人中众多，从历年交通事故的有关统计中看，在交通事故中死亡人员结构的比例上，农民占到了近八成，所以，农民应该是我们宣传教育的重点。通过采用农民喜闻乐见的形式来开展丰富多彩的交通安全宣传教育，如派出宣传队巡回演出、放映，并在其间开展有奖竞答。编印有交通事故案例内容的宣传小册子，免费发放。在村庄里拉横幅或者张帖多彩标语等等，让农民从娱乐中学习交通法律知识，了解交通安全常识，潜移默化地规范农民的交通行为。
四是抓住驾驶人，采用多种形式对其开展宣传教育。驾驶人是交通参与者中的特殊群体，特别是机动车驾驶人，从他们学习驾驶时就必须严格把关。机动车是交通活动中的相对强者，机动车驾驶人的交通法制观念、交通安全意识和业务水平，直接关系到机动车在参与交通过程中的安全。对机动车驾驶人，特别是客运机动车的驾驶人，要从其职业道德、职业风险和交通法律上来开展宣传教育，采用集中会议、个别谈话、公开暴光、奖惩结合等形式，加强对他们的教育，以提高他们的法制观念、安全意识和业务技能。
环节之二：狠抓道路基础设施和安全设施隐患的整改
道路交通的基础是道路，其基础设施和安全设施的完好，是保障道路交通安全的重要条件之一。在预防交通事故的工作中，道路基础设施和安全设施上所存在的安全隐患以及对这些隐患的有效整改是绝对不可忽视的。目前，在全国的公路网中，干线公路，特别是高等级的国道、省道和高速公路，基础设施完好，安全设施齐备，交通安全畅通。然而，在一些等级较低的干线公路或者经济欠发达地区的县乡道路上，道路基础较差，交通安全设施不全，存在着很多的安全隐患。
一是宽路窄桥或者直路斜桥。不少的县乡道路，甚至是省级公路，路型差、路况差，等级低下，路型差，路况差。道路改建、扩建后，原有桥梁没有同步改建或扩建，存在着宽路窄路或者直路斜桥的现象，这一现象在苏北农村和一些经济欠发达的其它地区最为常见，不熟悉路况的外来车辆，常常因此发生撞桥冲河的翻车、坠车事故。
二是平、纵曲线相交存在视距盲区。一些道路的急弯路段和陡坡相连，一些道路是在两条道路交汇处既有陡坡又有急弯，还有个别路段的交叉路口还好位于两条道路两处纵曲线的谷底位置，如江苏省333省道高邮市境内的人字河大桥路段，该路段东西走向，大桥东为纵坡大于7%长度为150米的陡坡，坡底路南与该市的县道相交，而该县道的起点就是一处大于12%的长度仅为50米并与另一座桥梁相连的超级陡坡。此处虽采取多种措施，仍然事故多发。
三是沿河高路基路段缺少必要的、有效的安全防护设施。在不少的地区，一些道路都是沿河而建，从路面到水平的落差有大有小，其落差较大的路段达到5米以上，如江苏省237省道、332省道、333省道等，落差较小的也有2米左右，有些沿河而建的道路，没有设置安全防护设施，有些道路公路部门在修建或改建时，设置了一些安全防护设施，但随着时间的流逝，这些设施有的已经老化或损坏，有的在道路养护中迁走，有的则是随着路面不断增高而失去了应有的防护作用。
四是县乡道路普遍缺少交通标志和交通标线。一些集镇村庄路段、急弯陡坡路段和交叉路口路段以及一些路面状况或交通环境特殊的路段缺少相应的警告标志或指示标志；县乡道路虽然早在上世纪90年代就实现了黑色化或白色化，但交通标线却没有及时设置，路面通行权利不明确，机动车、非机动车不分道，在行驶中占道、抢道的现象屡见不鲜，极易引发碰撞、刮擦交通事故。上述道路基础设施和交通安全设施的隐患必须引起各级政府和有关职能部门的重视，采取切实可行的措施，分清轻重缓急，共同提出整改方案，尽早着手整改，积极预防可能因此引发的交通事故。
环节之三：强化路面交通的动态管理。
路面交通的动态管理是道路交通秩序管理的一个重要组成部分，也是预防交通事故，特别是预防重、特大交通事故的有效途径，路面动态管理是公安交通管理部门管理交通的重点之一，多年以来，从公安部交管局，到各个省总队、再到支队、大队，几乎每年都部署开展夏季或冬季“行车秩序整顿”、“干线路面交通秩序整顿”等等专项工作，其目的就是通过各项整顿工作，规范路面行车秩序，预防和减少交通事故，要强化路面交通的动态管理，笔者认为，不但要开展多种形式多种内容的动态交通秩序整顿，还要注意抓住以下几项工作：
一是整合警力资源，最大程度地充实一线。目前，全国各地的公安交通管理部门警力都很缺少，如何利用现有的警力资源，实行节约化管理，这是各级公安机关的领导都应该重视的问题，在江苏省，特别是苏北地区，一些交巡警大队只有几十名警察，要管理千余公里的道路，每年还要处理千余起的交通事故。部分农村中队只有2—3名警力，要上路、要处警、要处理事故，要管理车辆，还要抓好内务，一线民警几乎都在超负荷工作。警力得不到保证，路面动态交通管理就难以实现，只有整合警力资源，实行多警种联合管理或紧密型协作管理，才能有效地开展路面动态交通的管理，从而预防交通事故的发生。
二是建立科学、合理的勤务机制。勤务管理机制是决定路面动态交通管理效率和效益的基础，在江苏省，各地都按照省总队的要求，结合本的实际，制定了一套较为完善的勤务机制和勤务制度，为预防和减少交通事故打下了较好的基础。然而，随着交通安全形势的发展，个别地区原有的勤务机制已不能适应动态交通管理的需要。这就需要有关领导改变观念，调整思路，积极应对新形势、新需要，在公路上实行新的勤务机制，如路段交通安全承包责任制、相连辖区中队联勤责任制、夜间干线公路管控责任制、辖区道路支线路段巡控责任制、农村驻所（派出所）、村交巡警工作责任制等等，用责任制的形式补充、完善现行的勤务管理机制和制度，逼警上路、上路管事、积极预防交通事故。
三是加大科技投入，用科技强化路面交通动态的管理和控制。目前，全国各地的公安交通管理部门在市（城）区的道路上都投入了较多的科技装备，如动态监控系统、电子警察等，对城市道路的动态交通管理起到了积极的作用。然而，在绝大多数的地区，干线公路上科技装备较少，农村公路几乎是空白，而通车里程长、行车速度快、交通秩序乱的往往是干线公路和农村公路，在这些公路上，警力少，管理的覆盖面小，很多路段处于失控失管状态，如果在这些路段上选择重点地点设置一些诸如动态监控系统的科技装备，将会起到事半功倍的效果。
四是实行严管重罚。执勤民警应该要有“严管出秩序、重罚降事故”的管理观念，在路面管理中加大对动态交通中交通安全违法行为的处罚力度，特别对那些有硬行车秩序，危害交通安全的“酒后开车”、“超速行驶”、“强行超车”、“强闯信号”、“带病行驶”、“疲劳驾驶”和“非客运车辆载客”、“报废车拼装车上路行驶”等等交通安全违法行为，要给予严格查处，严格处罚。通过严管重罚，震慑交通安全违法行为人，减少交通安全违法行为，从而达到预防和减少交通事故的目的。
在预防交通事故的工作中，还有一些环节也不应忽视，如车辆生产、销售的环节。驾驶人培训的环节，车辆上牌检验的环节等等。相对而言，上述三大环节在预防交通事故中所占的比重较大，抓住了这三大环节，也就抓住了预防交通事故的牛鼻子。
作者单位：江苏省高邮市公安局交巡警大队
Provisions for Drug Advertisement Examination
State Food and Drug Administration，State Administration for Industry and Commerceof the People’s Republic of China
Provisions for Drug Advertisement Examination
(SFDA Decree No. 27)
The Provisions for Drug Advertisement Examination, adopted by the State Food and Drug Administration and the State Administration for Industry and Commerce of the People’s Republic of China, is now issued in the decree sequence number of the State Food and Drug Administration. The Provisions shall go into effect as of the date of May 1, 2007.
Shao Mingli
Commissioner
State Food and Drug Administration
Zhou Bohua
Minister
State Administration for Industry and Commerceof the People’s Republic of China
March 13, 2007
Provisions for Drug Advertisement Examination
Article 1 The Provisions are formulated for the purposes of strengthening regulation on drug advertisements and ensuring the authenticity and legality of drug advertisements in accordance with the Advertisement Law of the People’s Republic of China (hereinafter referred to as Advertisement Law), the Drug Administration Law of the People's Republic of China (hereinafter referred to as Drug Administration Law), the Regulations for the Implementation of Drug Administration Law of the People's Republic of China (hereinafter referred to as Regulations for the Implementation of Drug Administration Law) and other regulations related to supervision on advertisements and drugs.
Article 2 A drug advertisement refers to any advertisement published through various media or forms containing drug name, indications (functions) or other relevant contents, and shall be examined and approved in accordance with the Provisions.
Where only the names of non-prescription drugs (including adopted names and trade names) are publicized or only the names of prescription drugs (including adopted names and trade names) are publicized in professional medical or pharmaceutical journals, the examination is not required.
Article 3 The drug advertisement applied for examination shall be approved provided that it conforms to the following laws, regulations and related provisions:
(1) Advertisement Law;
(2) Drug Administration Law;
(3) Regulations for Implementation of Drug Administration Law;
(4) Criteria for Examining and Publishing Drug Advertisement;
(5) Other provisions of the State on advertisement regulation.
Article 4 The drug regulatory departments of the provinces, autonomous regions or municipalities directly under the Central Government are the drug advertisement examination authorities responsible for examining drug advertisements within their administrative regions. The administrative departments for industry and commerce at or above the county level are supervision and control authorities for drug advertisements.
Article 5 The State Food and Drug Administration shall guide and supervise the examination conducted by drug advertisement examination authorities and punish, in accordance with law, the examination authorities that have violated the Provisions.
Article 6 An applicant for a drug advertisement approval number must be an eligible drug manufacturer or distributor. Where the applicant is a drug distributor, the consent of the drug manufacturer is required.
An applicant may entrust an agent with the application for a drug advertisement approval number.
Article 7 An application for a drug advertisement approval number shall be submitted to the drug advertisement examination authority in the place where the drug manufacturer is located.
An application for an import drug advertisement approval number shall be submitted to the drug advertisement examination authority in the place where the agent of the import drug is located.
Article 8 Where a drug manufacturer or distributor applies for a drug advertisement approval number, it shall submit an Application Form for Drug Advertisement (Appendix 1) with sample manuscript (sample film or sample record) of which the content is consistent with that to be published attached, and an electronic document of drug advertisement application. It shall also submit the following proof documents that are authentic, legal and valid:
(1) Copy of the Business License of the applicant;
(2) Copy of the Drug Manufacturing Certificate or the Drug Supply Certificate of the applicant;
(3) Where the applicant is a drug distributor, the original document proving that the drug manufacturer authorizes the drug distributor to be the applicant shall be submitted;
(4) Where an agent submits an application for a drug advertisement approval number on behalf of the applicant, an original authorization letter given by the applicant to the agent, a copy of business license of the agent and other documents proving the subject’s qualifications shall be submitted;
(5) Copies of the drug approval document (including Import Drug License or Pharmaceutical Product License), copy of approved insert sheet, and label and insert sheet used in practice;
(6) For non-prescription drug advertisement, a copy of registration certificate of non-prescription drug examination or copies of relevant certificates is required;
(7) Where an applicant applies for an import drug advertisement approval number, copies of qualification certificates of the agent of the import drug shall be submitted;
(8) Where the trade name, registered trademark and patent of the drug are involved in an advertisement, copies of the valid certificates and other relevant documents proving the authenticity of the advertisement shall be submitted.
The copy of any approval document prescribed in this Article shall be sealed by the document holder.
Article 9 An advertisement application by an enterprise for a drug shall not be accepted by the drug advertisement examination authorities under any of the following circumstances:
(1) Any of the circumstances under which the application shall be rejected as prescribed in Article 20, Article 22 and Article 23 of the Provisions;
(2) An administrative procedure to withdraw a drug advertisement approval number is in process.
Article 10 After receiving an application for drug advertisement approval number, where the dossier is complete and in conformity with statutory requirements, the drug advertisement examination authority shall issue an Acceptance Notice of Drug Advertisement; where the dossier is incomplete or not conforming to the statutory requirements, one notification on all the content to be supplemented or corrected shall be given to the applicant on the spot or within five working days; if the notification to the applicant is not issued within the timeline, the application is deemed as being accepted upon the date when the dossier is received.
Article 11 Within ten working days upon accepting an application, the drug advertisement examination authority shall check the authenticity, legality and validity of the documents submitted by the applicant, and shall examine the advertisement content in accordance with law. For the drug advertisement in conformity with statutory requirements, a drug advertisement approval number shall be issued; for those not in conformity with statutory requirements, the authority shall make a decision of not issuing a drug advertisement approval number and notify the applicant of the decision with reasons in written form and the applicant’s right to apply for administrative reconsideration or to bring an administrative suit by law.
For approved drug advertisement, the drug advertisement examination authority shall report to the State Food and Drug Administration for records and send the approved Application Form for Drug Advertisement to the authority responsible for advertisement supervision and control at the same level for records. Where there is any problem in the drug advertisement reported to the State Food and Drug Administration for records, the State Food and Drug Administration shall instruct the drug advertisement examination authority to correct it.
The drug regulatory departments shall announce the approved drug advertisement timely.
Article 12 Where a drug advertisement is to be published in the province, autonomous region or municipality directly under the Central Government other than the place where the drug manufacturer and the agent of the import drug are located (hereinafter referred to as “non-local drug advertisement”), it shall, before being published, be submitted for records to the drug advertisement examination authority in the place where the advertisement is to be published.
Article 13 The following materials for non-local drug advertisement shall be submitted for record:
(1) Copy of the Application Form for Drug Advertisement;
(2) Copy of the approved drug insert sheet;
(3) For television or audio broadcast advertisement, it is required to submit the audio tape, compact disc or other medium carrier on which the content is consistent with the approved content.
The copy of any document prescribed in this Article shall be sealed by the document holder.
Article 14 For application for putting non-local drug advertisement on record in accordance with Articles 12 and Article 13 of the Provisions, the drug advertisement examination authority shall, within five working days after accepting the application, put such drug advertisement on record, endorse the word “recorded” on the Application Form for Drug Advertisement, affix the seal specific for drug advertisement examination and send the form to the supervision and control authorities for advertisements at the same level for future reference.
Where the drug advertisement examination authority of a place where a drug advertisement is to be put on record finds that the drug advertisement is not conformed with the relevant provisions, it shall fill in the Opinion on the Record of Drug Advertisement Examination (Appendix 2), submit it to the original drug advertisement examination authority for check, and copy it to the State Food and Drug Administration.
Within five working days upon receiving the Opinion on the Record of Drug Advertisement Examination, the original drug advertisement examination authority shall give its opinions to the drug advertisement examination authority of the place where the drug advertisement is to be put on record. Where no consensus is achieved between the original drug advertisement examination authority and the drug advertisement examination authority of the place where a drug advertisement is to be put on record, the case may be submitted to the State Food and Drug Administration that shall make a final judgment.
Article 15 The valid term of a drug advertisement approval number is one year. It shall become invalid upon expiration.
Article 16 The content of an approved drug advertisement is not allowed to be changed when being published. Where any change to the drug advertisement is needed, a new drug advertisement approval number shall be obtained.
Article 17 Where an advertisement applicant publishes a drug advertisement by itself, it shall keep the original Application Form for Drug Advertisement for two years for future check.
Where an advertisement publisher or advertising operator is authorized by the applicant to publish a drug advertisement, it shall check the original Application Form for Drug Advertisement, publish the advertisement in accordance with the approved content and keep a copy of the Applicant Form for Drug Advertisement for two years for future check.
Article 18 Where there is any of the following circumstances for an approved drug advertisement, the original drug advertisement examination authority shall issue a Notice of Drug Advertisement Re-examination (Appendix 3) and conduct the re-examination. The drug advertisement may continue to be published during the re-examination.
(1) The State Food and Drug Administration finds that the content of the drug advertisement approved by the drug advertisement examination authority is not in conformity with the provisions;
(2) A supervision and control authority for advertisement at or above provincial level makes a re-examination proposal;
(3) Other circumstances where a re-examination is required by a drug advertisement examination authority.
After re-examination, where the drug advertisement is not in conformity to the statutory requirements, the Application Form for Drug Advertisement shall be taken back and the original drug advertisement approval number shall become invalid.
Article 19 Drug advertisement examination authorities shall cancel the drug advertisement approval number in any of the following circumstances:
(1) Where a Drug Manufacturing Certificate or the Drug Supply Certificate is revoked;
(2) Where a drug approval document is withdrawn or cancelled;
(3) Where the State Food and Drug Administration or the drug regulatory department of the province, autonomous region or municipality directly under the Central Government instructs to stop the production, sales and use of the drug.
Article 20 For any alteration to the approved content of a drug advertisement for false propaganda, the drug regulatory departments shall instruct to stop the publication of the advertisement immediately, revoke the drug advertisement approval number, and shall not accept any application for advertisement of the drug within one year.
Article 21 Where any illegal advertisement in which the scope of indications (functions) of the drug is expanded without authorization, the therapeutic effectiveness is exaggerated extremely, or which seriously cheats or misleads the customers, is found, the drug regulatory department at or above the provincial level shall take mandatory administrative measures to suspend the sales of the drug within their administrative area and order the enterprise that illegally publishes the drug advertisement to issue a correction notice in relevant local media.
After the enterprise that illegally publishes the drug advertisement issues a correction notice as required, the drug regulatory department at or above the provincial level shall make a decision on lifting the mandatory administrative measures within 15 working days; where it is necessary to test the drug, the drug regulatory departments shall determine whether to lift the mandatory administrative measures within 15 days as from the day when the test report is issued.
Article 22 Where a drug advertisement application providing false materials is found by the drug advertisement examination authority during the examination, no further application of the enterprise in respect of the advertisement of the drug shall be accepted within one year.
Article 23 Where a drug advertisement with an approval number is found by the drug advertisement examination authority to have provided false materials, such drug advertisement approval number shall be revoked and no further application from the enterprise in respect of the advertisement of the drug shall be accepted within three years.
Article 24 Any drug advertisement, of which the approval number is taken back, cancelled or revoked in accordance with Article 18, Article 19, Article 20 and Article 23 of the Provisions, shall be discontinued for publication immediately; non-local drug advertisement examination authorities shall stop filing the record of the advertisement of the enterprise with the drug advertisement approval number.
Where a drug advertisement examination authority takes back, cancels or withdraws a drug advertisement approval number in accordance with Article 18, Article 19, Article 20 and Article 23 of the Provisions, it shall notify the supervision and control authority for advertisements at the same level within five working days from the day when the administrative decision on the matter is made; the supervision and control authority for advertisements shall handle it in accordance with law.
Article 25 Where a non-local drug advertisement is found not put on record in the drug advertisement examination authority of the place where it is published, the authority shall instruct to file its record within a time limit. If the record is not filed within the time limit, the drug advertisement in the above-mentioned place shall be suspended.
Article 26 The drug regulatory department at or above the county level shall monitor and check the publishing of drug advertisement that has been examined and approved. For any illegal drug advertisements, drug regulatory departments at all levels shall fill in the Notice on the Transfer of Illegal Drug Advertisement (Appendix 4) and transfer it to an supervision and control authority for advertisements at the same level together with such materials as samples of illegal drug advertisement; where the content of approved non-local drug advertisement is altered without permission, the drug advertisement examination authority of the place where the advertisement is published shall advise the original drug advertisement examination authority to revoke its approval number in accordance with Article 92 of the Drug Administration Law and Article 20 of the Provisions.
Article 27 Where an illegal drug advertisement is published and the circumstances are serious, the drug regulatory department of province, autonomous region or municipality directly under the Central Government shall announce the matter to the public and timely report it to the State Food and Drug Administration. The State Food and Drug Administration shall summarize and release the collected information periodically.
Where any false or illegal drug advertisement is published and the circumstances are serious, it shall be announced to the public jointly by the State Administration for Industry and Commerce and the State Food and Drug Administration if necessary.
Article 28 For any drug advertisement published without approval, or the contents published inconsistent with the approved ones, the supervision and control authority for advertisements shall impose a punishment in accordance with Article 43 of the Advertisement Law; where it constitutes false advertisement or misleading propaganda, the supervision and control authorities for advertisements shall impose a punishment in accordance with Article 37 of the Advertisement Law and Article 24 of Anti-Unfair Competitions Law.
In the process of investigation of an illegal drug advertisement, where there is a need to affirm any drug technical information, the supervision and control authority for advertisements shall notify the drug regulatory department at or above the provincial level. The drug regulatory department at or above the provincial level shall give the affirmation result to the supervision and control authorities for advertisements within ten working days after receiving the notification.
Article 29 The staff members that examine and supervise drug advertisements shall be trained in such laws and regulations as the Advertisement Law and the Drug Administration Law. Where the staff members in drug advertisement examination department or in supervision and control authority for drug advertisements neglect their duty, abuse their power, or practice favoritism and commit irregularities, they shall be given an administrative sanction in accordance with law. If a crime is constituted, they shall be investigated for their criminal liabilities in accordance with law.
Article 30 A drug advertisement approval number shall be “X Yao Guang Shen (Shi) No. 0000000000", “X Yao Guang Shen (Sheng) No. 0000000000", “X Yao Guang Shen (Wen) No. 0000000000". “X” is the abbreviation for a province, autonomous region or municipality directly under the Central Government. “0000000000” is a number with ten digits, in which the first six represent year and month of the examination, and the last four represent advertisement approval sequence number. “Shi”, “Sheng” or “Wen” represents certain classification code used in advertising media.
Article 31 These Provisions shall come into force as of May 1, 2007. The Provisions for Drug Advertisement Examination issued by the State Administration for Industry and Commerce and the Ministry of Health (Decree of State Administration for Industry and Commerce No. 25) on March 22, 1995 shall be annulled therefrom.
