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关于落实实名制登记管理制度

发布时间:2018-11-21 16:16:00 打印 关闭 【字体:

以案释法

--关于落实实名制登记管理制度

一、案例

《中华人民共和国反恐怖主义法》于2016年1月1日正式实施,这是我国反恐怖斗争的重要里程碑,为依法打击暴恐活动,维护国家安全,公共安全和人民生命财产安全,提供了坚实的法律支撑与保障。凯里市公安局依托《反恐怖主义法》的实施,坚决贯彻以严格的管理促成行业自律,打造坚不可摧的反恐怖主义人民防线的工作思路,不断加强社会管理的力度,于2017年11月6月开出了该市反恐怖管理工作的第一张罚单!

2016年8月8日,凯里市公安局在该对市旅店业的一次例行检查行动中,发现辖区皇朝洛奇时尚商务酒店旅店未实名登记,当场给予处罚人民币500元的决定;2017年度,2月14日、3月22日、9月14日、10月17日、10月27日行动中,均发现辖区皇朝洛奇时尚商务酒店旅店存在未实名登记的情况,给予当场处罚共计1300元;10月27日在给予处罚的同时,再次强调要依据《反恐怖主义法》做好旅店业实名制的登记录入,随后将《关于严格执行“人证合一”旅馆业实名制管理制度的通知》发给该旅馆责任人,告诫并下发给单位法人,如果再违反宾馆旅店业实名制将按照反恐法进行处理的整改意见书。

2017年11月6日凌晨7时,该市对2017年度中未落实旅馆业实名制登记制度被处罚五次而屡屡不引起重视的凯里市皇朝洛奇时尚酒店进行突查,然而该酒店仍然没有进行实名制登记旅客身份信息,凯里市公安局根据《中华人民共和国反恐怖主义法》第八十六条之规定,对凯里市皇朝洛奇时尚酒店处行政罚款壹拾万元人民币(100000.00)、对凯里市皇朝洛奇时尚酒店管理人员吴某处罚款贰千元人民币(2000.00)、对凯里市皇朝洛奇时尚酒店收银员龙某处罚款五百元人民(500.00),并在辖区旅店业微信群内进行了通报,在全市宾馆旅店业全面落实实名制管理制度起到警示和震慑作用。同时也为凯里市反恐怖工作领导小组对全市强化反恐怖主义法的贯宣、落实州局党委反恐防恐“五条底线”的强硬决心和措施,进一步规范管理旅馆业、实现“人证合一”,信息及时录入上传等起到了强有力的推动作用。

二、《中华人民共和国反恐怖主义法》关于相关行业实行实名制的规定

第二十一条  电信、互联网、金融、住宿、长途客运、机动车租赁等业务经营者、服务提供者,应当对客户身份进行查验。对身份不明或者拒绝身份查验的,不得提供服务。

立法背景

随着经济社会的发展和信息技术的应用,电信、互联网、金融、住宿、长途客运、机动车租赁等行业已经与人们日常工作生活紧密地联系在一起。这些行业为人们提供了越来越多元、便捷的服务,同时,也存在被恐怖分子利用以进行通信联络,组织、策划、实施恐怖活动,进行恐怖融资、洗钱,藏匿、逃避侦查等违法犯罪活动的风险。以互联网为例,随着信息技术的普遍应用,一些恐怖组织和恐怖分子越来越多地利用信息网络组织、策划、指挥恐怖袭击,宣扬恐怖主义、极端主义思想,煽动实施恐怖活动,传授实施恐怖活动的方法,为实施恐怖活动筹集资金,在互联网上鼓动、招募他人参加恐怖活动组织等。有的恐怖活动组织特别重视和关于应用互联网技术,这使得恐怖活动组织之间通信联络、协调行动更为便捷,恐怖主义思想传播更快、影响更大。对这种网络恐怖活动的新动向,必须予以高度重视和有效应对。

本条根据反恐怖工作的实际需要和经济社会发展的实际情况,对确有实名制管理的必要,同时实践中已有较好的实名制管理基础因而具有可行性的几个关键行业规定了实名制。其中电信、互联网行为实行实名制管理,有利于加强对通讯、信息传输和管理,以防范利用电信、互联网等信息网络实施恐怖活动,及时发现、追踪、预警恐怖组织和恐怖分子的通信联络、信息传输以及各种网上恐怖活动。规定对金融业实行实名制管理,有利于防范和监控恐怖活动组织和人员利用金融渠道实施资金汇集、分配、转移等恐怖融资活动。规定对住宿行业实行实名制管理,有利于防止恐怖分子和嫌疑人电隐匿行踪、逃避打击,便于有关主管部门及时掌握和了解其行踪。规定长途客运、机动车租赁行业实行实名制管理,有利于防范恐怖分子的涉恐嫌疑人员利用或者针对这些交通工具实施恐怖袭击,便于有关主管部门及时掌握和了解其行踪。因此,对这几个关键行业实行实名制管理,可以说是反恐怖工作的基础工作和基础环节。

条文解读

根据本条的规定,对电信、互联网、金融、住宿、长途客运、机动车租赁等业务实行实名制管理,包含两个方面的要求:一是,相关业务经营者、服务提供者应当对客户的身份进行查验。查验身份是指检查验看客户的身份证或者护照、军官证等其他依法可以用于证明身份的证件,并根据情况和有关规定对客户身份信息进行记载或登录,以备依法查询之用。二是,对于身份不明或者拒绝身份查验的客户,也包括客户虽提供了证明,但因该证明不符合规定和要求而无法证明其身份的情况。如身份证明因残缺污损而缺失重要信息,无法确认人证相符的等。拒绝身份查验是指客户明确表示不接受相关业务经营者、服务提供者检查难看其身份证明。

本条中的电信、互联网服务,既包括中国移动、中国联通、中国电信等运营商提供的通话、短信等基础通信服务,电信线路、管道等公共网络基础设施服务,还包括各宽带业务经营者提供的从用户终端到互联网的接入服务,服务器托管等相关服务,以及相关信息内容服务提供者提供的各种信息服务。根据本法规定,电信、互联网行业和业务经营者、服务提供者需要对客户身份进行查验,对身份不明或者拒绝身份查验的,不提提供服务。实际上在枉法施行以前,我国已经对电话和互联网实行了实名制管理。如2012年《全国人大常委会关于加强网络信息保护的决定》第六条规定,网络服务提供者为用户办理网站接入服务,办理固定电话、移动电话等入网手续,或者为用户提供信息发布服务,应当在与用户签订协议或者确认提供服务时,要求用户提供真实身份信息。工信部2013年出台了《电话用户真实身份信息登记规定》。2015年工信部、公安部、国家工商总局联合印发了《电话“黑卡”治理专项行动工作方案》,要求自2015年9月1日,电信企业以及各类实体营销渠道,在为用户办理电话入网手续时核验用户本人的居民身份证件,并通过系统录入用户身份信息。

本条中的金融服务是指银行、证券、保险、依托等金融机构为客户提供的融资投资、储蓄、信贷、结算、证券、买卖、商业保险和金融信息咨询等服务。根据本法规定,这些金融机构在提供提供相关服务时,应当对客户身份进行查验,对身份不明或者拒绝身份查验的,不得提供服务。关于金融行业实名制,银行、证券、保险等法律法规都有明确规定。如2007年施行的《中华人民共和国反洗钱法》对金融机构依法识别客户身份,保存客户身份信息和交易记录等作出明确规定。该法第三条规定,在中国境内设立的金融机构应当依法建立健全客户身份识别制度。第十六条规定,金融机构在与客户建立业务关系或者为客户提供规定金额以上的现金汇款、现钞兑换、票据兑付等一次性金融服务时,应当要求客户出示真实有效的身份证件或者其他身份证明文件,进行核对并登记。金融机构不得为身份不明的客户提供服务或者与其进行交易,不得为客户开立匿名帐户或者假名帐户。此外,其他一些金融法律法规规章对相关金融业务实名制也有规定,如2000年国务院《个人存款帐户实名制规定》对个人银行帐户实名制制度作出规定;2008年国务院《证券公司监督管理条例》对证券公司为客户开立证券帐户应当审查客户申报的姓名或者名称、身份的真实性作出规定;中国保监会2013年《人身保险客户信息真实性管理暂行办法》,对有关人身保险客户的信息真实性管理作了具体规定。

本条中的住宿服务主要是指旅馆、宾馆、酒店等有偿为顾客提供临时住宿的服务活动。根据本法规定,住宿业务经营者和服务提供者在为顾客提供住宿时,应当对顾客身份进行查验,对身份不明或者拒绝身份查验的,不得提供服务。《旅馆业治安管理办法》对旅馆业实名制已有明确规定,该办法第六条规定,旅馆接待旅客住宿必须登记。登记时,应当查验旅客的身份证件,按规定的项目如实登记。

关于长途客运实行实名制,主要是一些地方根据需要和了这方面规定,本条对长途客运实行实名制管理作了明确规定,为该行业实行实名制管理提供了法律依据。相关业务经营者和服务提供者在业务经营和提供服务过程中,必须依照本法规定查验客户的身份,对身份不明或者拒绝查验的客户,不得为其提供服务。此外,作为旅客运输方面比较重要的民航、铁路运输行业已经按照有关规定实行了实名制,如《民用航空安全保卫条例》第二十七条规定,安全检查人员应当查验旅客客票、身份证件和登机牌。《铁路安全管理条例》第六十四条规定,铁路运输企业应当按照国务院铁路行业监督管理部门的规定实施火车票实名购买、查验制度。相关业务经营者有服务提供者应当严格遵守规定,履行客户身份查验的义务,对身份不明或拒绝身份查验的,不得提供服务。

关于机动车租赁业实行实名制,从实际情况看,由于行业特点,一般的经营者都会严格审核客户的身份,对客户的身份进行查验。但是,这主要是经营者从保证交易安全,避免合同纠纷等的角度自发进行的。本条规定对机动车租赁业实行实名制,是从反恐安全防范的角度考虑,对该行业规定的法定义务。相关业务经营者和服务提供者应当严格遵守规定,履行查验客户身份的义务,对身份不明或者拒绝身份查验的,不得提供服务。

实践中应当注意的问题:一是,本条是从建立和完善反恐怖主义安全防范制度角度,对电信、互联网、金融、住宿、长途客运、机动车租赁等行业实行实名制的规定。实践中上述相关行业有的从业务需要和行业管理的角度出发,对实名制作了一定规定。本条从反恐安全防范措施的角度,一方面进一步明确了实名制的要求,另一方面也是将之前相关法规、规章以及各类规范性文件的规定,上升为国家法律规定。同时,针对没有实名制规定的行业和事项,本条依法设立了实行实名制管理的制度和要求。

二是,一般来说,对于身份不明或者拒绝查验身份的客户,相关业务经营者、服务提供者依照本条规定拒绝为其服务即可。除此之外,根据本法第九条规定,任何单位和个人都有协助、配合有关部门开展反恐怖主义工作的义务,发现恐怖活动嫌疑或者恐怖活动嫌疑人员的,应当及时向公安机关或者有关部门报告。因此,如果上述行业和经营者、服务提供者在查验客户身份过程中发现客户涉嫌恐怖活动的,除应当拒绝为其提供服务外,还应当及时向公安机关或者有关部门报告。

三、《中华人民共和国反恐怖主义法》关于相关行业违反本法第二十一条查验客户身份义务的法律责任规定

第八十六条  电信、互联网、金融业务经营者、服务提供者未按规定对客户身份进行查验,或者对身份不明、拒绝身份查验的客户提供服务的,主管部门应当责令改正;拒不改正的,处二十万元以上五十万元以下罚款,并对其直接负责的主管人员和其他直接责任人员处十万元以下罚款;情节严重的,处五十万元以上罚款,并对其直接负责的主管人员和其他直接责任人员,处十万元以上五十万元以下罚款。

住宿、长途客运、机动车租赁等业务经营者、服务提供者有前款规定情形的,由主管部门处十万元以上五十万元以下罚款,并对其直接负责的主管人员和其他直接责任人员处十万元以下罚款。

立法背景

本法第二十一条对电信、互联网、金融、住宿、长途客运、机动车租赁行业的实名制作了规定,根据该规定,这些行业的业务经营者、服务提供者应当对客户的身份进行查验,对身份不明的客户或者拒绝身份查验的客户,不得为其提供服务。规定对这些行业实行实名制,主要是这些行业存在被恐怖分子利用以进行通信联络,组织、策划、实施恐怖活动,进行恐怖融资、洗钱,藏匿、逃避侦查等活动的风险。实行实名制,有利于加强对通讯、信息传输的管理,以防范利用电信、互联网等信息网络实施恐怖活动,及时发现、追踪、预警恐怖组织和恐怖分子的通信联络、信息传输以及各种网上恐怖活动;有利于防范和监控恐怖活动组织和人员利用金融渠道实施资金汇集、分配、转移等恐怖融资活动;有利于防止恐怖分子和涉恐嫌疑人员隐匿行踪,逃避打击,便于有关主管部门及时掌握和了解其行踪;有利于防范恐怖分子和涉恐嫌疑人员利用或者针对交通工具实施恐怖袭击,便于有关主管部门及时掌握和了解其行踪。对这几个关键行业实行实名制管理,可以说是反恐怖工作的基础工作和基础环节。为了保证本法第二十一条规定的相关行业实名制的落实,本条对违反第二十一条关于实名制规定的行为,规定了相应的法律责任。

条文解读

本条分两款,第一款是关于电信、互联网、金融业务经营者和服务提供者不履行查验客户身份义务的规定。根据本款规定,对电信、互联网、金融业务经营者和服务提供者未按规定对客户身份进行查验,或者对身份不明、拒绝身份查验的客户提供服务的,由主管部门责令改正;拒不改正的,对单位和相关责任人员处以相应罚款的处罚。这里的“主管部门”是指法律、行政法规规定的电信、互联网、金融监督管理部门,包括工业和信息化部门、国家网信部门,中国人民银行,银行、证券、保险业监督管理部门等。本款区分不同情节,对电信、互联网、金融业务经营者和服务提供者的法律责任作了规定:一是责令改正。即对未严格执行实名制规定的相关行业经营者和服务提供者,由其主管部门现成采取有效措施纠正错误做法。二是对拒不改正的,由其主管部门对相关业务经营单位处二十万元以上五十万元以下罚款,并对其直接负责的主管人员和其他直接责任人员处十万元以下罚款。本款实行的双罚制,既对相关业务经营和服务提供单位进行处罚,也对直接责任人员予以处罚。这里的“拒不改正”是指经有关主管部门责令改正后,仍拒不按照法律规定和主管部门要求严格执行实名制。三是情节严重的,由主管部门对相关业务经营单位处五十万元以上罚款,并对其直接负责的主管人员和其他直接责任人员,处十万元以上五十万元以下罚款。这里的“情节严重”是指不按照规定执行实名制要求,经主管部门依法责令改正后,仍拒不改正;因拒不改正,不严格执行实名制要求,导致大量客户身份信息未经查验的等。

本条第二款是关于住宿、长途客运、机动车租赁等业务经营者和服务提供者不履行查验客户身份的义务的处罚性规定。根据本款规定,住宿、长途客运、机动车租赁的业务经营者和服务提供者有第一款规定的情形的,由主管部门处十万元以上五十万元以下罚款,并对其直接负责的主管人员和其他直接责任人员处十万元以下罚款。总体看,考虑到两类行业在经营内容、资产规模、处罚承受能力等方面存在较大差异,本款对住宿、长途客运、机动车租赁等业务经营者、服务提供者违反实名制管理规定的处罚,相比较第一款对电信、互联网、金融业务经营者、服务提供者规定的处罚要轻一些。第一款规定的罚款处罚分为两档,对单位以二十万元为起点,对情节严重的,最高罚款没有上限;对个人最高可以处五十万元罚款。本款规定对单位处十万元以上五十万元以下罚款,对个人处十万元以下罚款。另外需要说明的是,本款对住宿、长途客运、机动车租赁等业务经营者、服务提供者违反实名制管理规定的法律责任作了简化处理,即只规定对前款规定情形的,区分不同情节,分别作出责令改正、罚款的处理,特别是罚款处罚虽然只有一档,但也要注意区别违法情节的轻重,在十万元至五十万元之间,确定适当的处罚数额,做到过罚相当。

实践中适用本条规定需要注意的部门:一是,除本条规定外,有关电信、互联网、金融、住宿、长途运输、机动车租赁等行业管理的法律法规,有的在本法施行前已以对不履行查验客户身份义务的法律责任作了规定。对此,应当按照上位法优于下位法,新法优于旧法、特别法优于普通法的法律适用原则处理。如治安管理处罚法第五十六条规定,旅馆业的工作人员对住宿的旅客不按规定登记姓名、身份证件种类和号码的,处二百元以上五百元以下罚款。反恐怖主义法施行后,对上述行为的处罚,按照新法优于旧法的原则,应依照本条第二款的规定进行处罚。

二是,本条是对相关业务经营者和服务提供者违反实名制管理规定,处以责令改正、罚款处罚的规定,除本条规定的罚款处罚之外,本法第九十三条还对单位违反反恐怖主义法的,规定了其他处罚,即单位违反本法规定,情节严重的,由主管部门责令停止从事相关业务、提供相关服务或者责令停产停业;造成严重后果的,吊销有关证照或者撤销登记。因此,如果实践中相关单位违反实名制管理规定的行为,同时符合本法第九十三条规定的,还可以适用该条规定,由有关主管部门作出相应处理。

四、对单位违反《中华人民共和国反恐怖主义法》规定,对经营资格进行限制或者剥夺的处罚规定。

第九十三条  单位违反本法规定,情节严重的由主管部门责令停止从事相关业务、提供相关服务或者责令停产停业;造成严重后果的,吊销有关证照或者撤销登记。

立法背景

为了防范、调查、打击恐怖活动,本法对有关单位规定了一些义务。这些单位包括金融机构和特定非金融机构,电信业务经营者、互联网服务提供者,铁路、公路、水上、航空的货运和邮政、快递等物流运营单位,电信、互联网、金融、住宿、长途客运、机动车租赁等业务经营者、服务提供者,枪支等武器、弹药、管制器具、危险化学品、民用爆炸物品、核与放射物品等生产和进口单位、运输单位,重点目标的管理、营运单位,大型活动的承办单位,新闻媒体等。相应地,本法第九章法律责任中对单位违反本法相关规定的法律责任作出了具体规定。一方面,有关条款对单位规定了罚款处罚,对直接负责的主管人员和其他直接责任人员规定了罚款或者同时处以拘留的处罚。另一方面,对于单位违反本法规定情节严重的,不仅应当依法处以罚款,还应当对其经营资格予以限制或者剥夺。因此,本条统一规定了对单位违反本法规定,情节严重的在经营资格方面的处罚。之所以不在涉及单位法律责任的第一条中均作此规定,是出于立法技术的考虑,以免在每一条文中重复叙述。

条文解读

根据本条规定,单位违反本法规定,情节严重的,由主管部门责令停止从事相关业务、提供相关服务或者责令停产停业;造成严重后果的,吊销有关证照或者撤销登记。本条规定适用的情形,具体包括:(1)金融机构和特定非金融机构对脸盘儿反恐怖主义工作领导机构的办事机构公告的恐怖活动组织及恐怖活动人员的资金或者其他资产,不立即予以冻结的。(2)电信业务经营者、互联网服务提供者未依照规定为公安机关、国家安全机关依法进行防范、调查恐怖活动提供技术接口和解密等技术支持和协助的;未按照主管部门的要求,停止传输、删除含有恐怖主义、极端主义内容的信息,保存相关记录,关闭相关网站或者关停相关服务的;未落实网络安全、信息内容监督制度和安全技术防范措施,造成含有恐怖主义、极端主义内容的信息传播,情节严重的。(3)铁路、公路、水上、航空的货运和邮政、快递等物流运营单位未实行安全查验制度,对客户身份进行查验,或者未依照规定对运输、寄递物品进行安全检查或者开封验视的;对禁止运输、寄递,存在重大安全隐患,或者客户拒绝安全查验和物品予以运输、寄递的;未实行运输、寄递客户身份、物品信息登记制度的。(4)电信、互联网、金融、住宿、长途客运、机动车租赁等业务经营者、服务提供者未按规定对客户身份进行查验,或者对身份不明、拒绝身份查验的客户提供服务的。(5)未依照规定对枪支等武器、弹药、管制器具、危险化学品、民用爆炸物品、核与放射物品作出电子追踪标识,对民用爆炸物品添加安检示踪标识物的;未依照规定对运营中的危险化学品、民用爆炸物品、核与放射物品的运输工具通过定位系统实行监控的;未依照规定对传染病病原体等物质实行严格的监督管理,情节严重的;违反国务院有关主管部门或者省级人民政府对管制器具、危险化学品、民用爆炸物品决定的管制或者限制交易措施的。(6)防范恐怖袭击重点目标的管理、营运单位违反本法规定,未制定防范和应对处置恐怖活动的预案、措施的;未建立反恐怖主义工作专项经费保障制度,或者未配备防范和处置设备、设施的;未落实工作机构或者人员的;未对重要岗位人员进行安全背景审查,或者未将有不适合情形的人员调整工作岗位的;对公共交通运输工具未依照规定配备安保人员和相应设备、设施的;未建立公共安全视频图像系统值班监看、信息保存使用、运行维护等管理制度的;大型活动承办单位以及重点目标的管理单位未依照规定对进入大型活动场所、机场、火车站、码头、城市轨道交通站、公路长途客运站、口岸等重点目标的人员、物品和交通工具进行安全检查的。(7)新闻媒体等单位编造、传播虚假恐怖事件信息,报道、传播可能引起模仿的恐怖活动的实施细节,发布恐怖事件中残忍、不人道的场景,或者未经批准,报道、传播现场应对处置的工作人员、人质身份信息和应对处置行动情况的。(8)单位拒不配合有关部门开展反恐怖主义安全防范、情报信息、调查、应对处置工作的。(9)单位阻碍有关部门开展反恐怖主义工作的。本条规定的经营资格方面的处罚分为两个层次:对于单位违反本法规定,情节严重的,规定由主管部门责令停止从事相关业务、提供相关服务歌者责令停产停业,以进行整改,防止单位继续在某些业务领域从事违法行为。对于单位违反本法规定,造成严重后果的,由主管部门吊销有关证照或者撤销登记。

需要说明的是,本条规定与第九章法律责任中其他关于对单位处罚的条款不冲突,可以同时适用。以八十四条为例,如果电信业务经营者或者互联网服务提供者未按照主管部门的要求,停止传输、删除含有恐怖主义、极端主义内容的信息,保存相关记录,关闭相关网站或者关停相关服务的,可以由主管部门对单位处二十万元以上五十万元以下罚款,并对其直接负责的主管人员和其他直接责任人员处十万元以下罚款;情节严重的,处五十万元以上罚款,并对其直接负责的主管人员和其他直接责任人员,处十万元以上五十万元以下罚款,可以由公安机关对其直接负责的主管人员和其他直接责任人员,处五日以上十五日以下拘留。同时,对于其中情节严重的,由主管部门责令停止从事相关业务、提供相关服务或者责令停产停业;造成严重后果的,吊销有关证照或者撤销登记。

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