Regulations of Shanghai Municipality on Safe Production

Announcement of the Standing Committee of Shanghai

Municipal People’s Congress

No.88

Regulations of Shanghai Municipality on Safe Production were revised and adopted at the 36^th Session of the Standing Committee of the 15^th Shanghai Municipal People’s Congress on October 28, 2021 and are hereby promulgated. They shall be effective as of December 1, 2021.

The Standing Committee of Shanghai Municipal People’s Congress

October 28, 2021

Regulations of Shanghai Municipality on Safe Production

(Adopted at the 17^th Session of the Standing Committee of the 12^th Shanghai Municipal People's Congress on January 6, 2005; revised at the 29^th Session of the Standing Committee of the 13^th Shanghai Municipal People's Congress on September 22, 2011; amended for the first time in according with the Decision on Amending Seven Sets of Local Rules Including the Regulations of Shanghai Municipality on the Administration of River Courses adopted at the 27^th Session of the Standing Committee of the 14^th Shanghai Municipal People’s Congress on February 23, 2016; amended for the second time in accordance with the Decision on Amending Some Local Rules of This Municipality adopted at the 4^th Session of the Standing Committee of the 15^th Shanghai Municipal People’s Congress on May 24, 2018; and revised at the 36^th Session of the Standing Committee of the 15^th Shanghai Municipal People’s Congress on October 28, 2021)

Chapter I  General Provisions

Article 1

With a view to strengthening the safe production work in this Municipality, preventing and reducing accidents related to safe production, safeguarding the safety of the people’s lives and property and the safety of this Municipality, and promoting economic development and social stability, these Regulations are formulated in accordance with the Law of the People’s Republic of China on Safe Production and other relevant laws and administrative rules and in the light of the actual circumstances of this Municipality.

Article 2 

These Regulations shall apply to the safe production and relevant supervision and administration activities of the production and business units in the administrative areas of this Municipality. Where laws and rules have provided otherwise for fire-fighting safety, road traffic safety, railway transport safety, waterway transport safety, civil aviation safety, nuclear and radiation safety, and special equipment safety, such provisions shall apply.

Article 3

The leadership of the Communist Party of China shall be adhered to in the safe production work in this Municipality.

In the safe production work, it is necessary to put people and human life first, put protecting the people and human life above everything else, uphold the philosophy of safe development and the philosophy of the urban full-life-cycle administration, stick to the policies of top priority for safety, main emphasis on prevention, and comprehensive regulation, and prevent and defuse major safety risks at their sources.    

In the safe production work, it is necessary to follow the principle of shared responsibilities of party and administrative officials, each post with dual responsibilities for production and safety, joint management with concerted efforts, and accountability for dereliction of duties, to introduce the practice of safety administration in all industries, all business operations, and all production operations, to establish and improve the system of safe production responsibilities, to strengthen and implement the system of the production and business units bearing the main liability and governments assuming the supervisory responsibility, to increase the responsibility of the locality with safety risks, and to set up a mechanism of responsibility of the production and business units, with employee participation, government supervision, industry self-discipline, and public oversight.  

Article 4

A production and business unit shall assume the main responsibility for safe production, and shall adopt safety measure, and establish and improve a system of all employees’ safe production responsibilities and a system of safe production rules in accordance with the provisions of laws and rules and the characteristics of the unit’s production and business operations. 

Where the production and business operations involve multiple production and business units, these relevant units shall bear the corresponding safe production responsibilities according to law and in the light of their respective roles in the production and business operations, their association with safety, and the terms of the agreements among them.

The production and business units in emerging industries and sectors such as the platform economy shall establish, improve and implement a system of all employees’ safe production responsibilities, carry out safety risk control and hidden danger identification and handling, strengthen safe production training and education, and fulfill their obligations for safe production as prescribed by laws and rules.  

Article 5

The chief leader of a production and business unit is the first person responsible for its production safety, and takes comprehensive charge of its safe production work

The chief leader of a production and business unit is its legal representative, and is the actual person with top management authority for its production and operation.

Article 6

The Municipal People’s Government shall strengthen its leadership over the safe production work, incorporate safe production into the overall economic and social development, and establish and improve the safe production supervision system, accountability system and inspection system.

The municipal and district people’s governments shall, according to the municipal economic and social development planning, formulate safe production plans and organize their implementation. The safe production planning shall dovetail with the relevant planning including the territorial space planning. The municipal and district people’s governments shall strengthen the construction of safe production infrastructure and develop their safe production supervision capacities, with the needed funds included in the same-level budgets.   

The district people’s governments shall deploy supervisory forces, perfect the responsibility assessment, conduct supervisory inspection, organize identification and assessment of the safety risks within their respective areas, and adopt effective measures for safety control.

The town/township people's governments and sub-district offices as well as function zones such as development zones, industrial parks, harbour districts and scenic areas (hereinafter collectively referred to as function zones) shall specify the working bodies in charge of safe production supervision and administration and their duties, further develop the safe production supervisory forces, conduct supervision and inspection, according to their duties, over the safe production situation in their administrative areas or management zones, and assist the municipal and district people’s governments and their relevant departments, or as authorized,  perform the duties of safe production supervision and administration according to law.

Article 7

The municipal and district people’s governments shall each establish a safe production committee.

The safe production committees, under the leadership of the same-level people’s government, shall be responsible for the deployment, overall planning and coordination, and solution of the major safe-production events and problems in their areas, and shall study and specify the division of duties among their member units.

The safe production committees may, if necessary, establish specialized commissions to exercise overall planning, coordination and guidance for the safe production work in key industries and sectors.

Article 8

The municipal and district emergency management commissions shall undertake the routine work of the same-level safe production committees, and perform the comprehensive supervision and administration duties as follows:

　　1. formulating and implementing the specific plans and work plans for safe production jointly with relevant departments;

2. directing, coordinating and supervising the same-level people's governments’ relevant departments and the lower-level people's governments in performing their duties for the safe production work;

3. organizing, coordinating and commanding safe production emergency rescues and organizing the investigation and handling of safe production accidents under the authorization or entrustment of the same-level people's governments; and

4. other duties as provided by laws and rules, or vested by the municipal and district people’s governments.

Article 9

The departments of housing and urban-rural development, transportation, economy and informatization, agricultural and rural affairs, ecology and environment, firefighting and rescue, etc. shall, within the scope of their respective duties, exercise safe production supervision and administration in the relevant industries and sectors.

The competent departments of commerce, education, science and technology, civil affairs, ethnic and religious affairs, etc. and the state-owned assets supervision and administration commission shall take safe production as an important part of their administration of the industries and sectors, and strengthen their safe production work in terms of industry planning, industry policy, and standards and norms.

Other relevant departments shall, within their respective scope of duties, do well the safe production work.  

The list-based administration shall be adopted in the division of work among various departments, and the safe production committee shall, according to the provisions of laws and rules, determine the lists of safe-production responsibilities, powers, supervision and tasks for member units, and implement these lists after submitting them to the same-level people’s governments for approval.   

Where the safe production supervision duties are not yet clarified in new industries, new forms of business, and new sectors, the safe production committees shall establish a cross-departmental consultation and coordination mechanism to specify the division of duties according to the principle of business similarities, and implement the mechanism after submitting it to the people’s government for approval.

The emergency management commissions and the departments exercising safe production supervision and administration in relevant industries and sectors are collectively referred to as the safe production supervision and administration departments, which shall coordinate with each other, conduct joint administration, share information and resources, and step up safe production supervision and administration according to law.

Article 10

The trade unions shall exercise supervision over the safe production work according to law. The trade unions of production and business units shall organize, according to law, their employees to participate in the democratic management and supervision of the safe production work of their units, put forward opinions and suggestions on the safe production rules of their units, take part in investigation of safe production accidents according to law, and safeguard the employees’ legitimate rights and interests in safe production.  

Article 11

This Municipality shall encourage scientific and technological research on safe production, support the popularization and application of new technologies, materials and equipment that are conducive to the improvement of safe production technologies, support the digitalization of management, and support safe-production sci-tech projects that have high technological contents, strong safety utility, and wide application scenarios, so as to raise the level of essential safety.  

Article 12

This Municipality shall strengthen digital control of safe production, promote the integration of “Government Online-Offline Shanghai” and “One Network Administration” platforms to empower safe production, apply modern information technologies such as big data, the Internet of Things, and AI, rely on the big data resource platform, gather various kinds of basic information related to safe production, collect information resources on risk control, hidden danger identification and handling, accident investigation, emergency rescue, administrative enforcement, etc., strengthen data sharing and the opening of professional applications, and elevate the capabilities for real-time dynamic perception of hidden safety risks, scientific efficient research and judgement, and rapid response and handling.

This Municipality shall support the application of “Shanghai QR Code” enterprise service function (enterprise code) in safe production and emergency management in various districts and departments.  

Article 13

The municipal emergency management commission shall, jointly with other safe production supervision and administration departments and the relevant departments in the Yangtze River Delta, establish a cooperation mechanism for safe production work, make overall coordination to deal with major safe production problems in the region, develop a safe production administrative system characterized by information exchange, resource sharing, combined service and synergetic actions, strengthen the building of an integrated emergency rescue system, reinforce joint control of major safety risks, the connectivity of the emergency response plans and coordination of rescue handling, and conduct joint enforcement actions on safe production across regions.  

Article 14

This Municipality shall reward units and individuals that have made outstanding achievements in improving safe production conditions, preventing safe production accidents, participating in emergency rescue and aid, etc.

Chapter II  Safety Risk Prevention and Control

Article 15

The municipal and district people’s governments shall establish and improve the systems of safety risk prevention and control in their respective administrative areas. The safe production supervision and administration departments shall, in the light of the safe production requirements of the whole process and all links of urban operation, conduct regular identification, analysis, assessment, control and monitoring of safety risks in their respective industries, sectors and key units, strengthen research and analysis, issue warnings and tips in a timely fashion, enhance exchanges of risk control information, improve the application of the achievements therefrom, tighten comprehensive control, and dealing with the problems at their sources.  

Article 16

The safe production supervision and administration departments shall use the internet to strengthen the exchange, sharing, application and expansion of the production and business units’ data of safety risks, potential accidents, and supervisory enforcement, and conduct the following digitalized prevention and control of safety risks:  

1. improving the development planning and application of sensing equipment;

2. exercising off-site supervision such as online oversight, remote oversight, mobile oversight, and intelligent early warning;

3. using electronic tags to identify and trace dangerous chemicals, liquefied gas cylinders, etc.; and

4. creating prognosis models, and using digital tools to identify safety risks and find out potential accidents and illegal acts, all of which can be used as important basis for formulating supervisory inspection plans and supervisory measures.  

Article 17

The safe production supervision and administration departments shall make analysis and judgement according to the information on safety risks, potential accidents, enforcement and supervision submitted by the production and business units.

The municipal safe production supervision and administration departments shall organize experts and professional agencies to identify and assess the new-type danger sources stemming from new forms of business, new technologies, new techniques and new materials.

Article 18

The safe production supervision and administration departments shall, according to the actual circumstances of the industries and sectors, organize professional agencies and experts to conduct periodic assessments of safety risks, and strengthen researches on compound risks, potential risks, risk coupling, risk cycles, etc.

A safety risk assessment shall generate an assessment report, which shall include, among others, the basic situation of the safety risks, the possibilities and harms of the accidents, the impact scope of the accidents, safety risk control and emergency measures, and the conclusion and suggestions of the assessment.

The safety risk assessment reports shall serve as an important reference in the safety risk prevention and control.

Article 19

The safe production supervision and administration departments shall rely on the big data resource platform to collect safety risk information, and use the “One Network Administration” platform to draw and update safety risk distribution maps.   

The safe production supervision and administration departments shall track risk changes in a timely manner, and compile standards or norms on safety administration for new risks and new situations, in a bid to perfect risk control measures.

Article 20

When drawing up overall urban planning and territorial space planning, emergency management planning, urban comprehensive disaster prevention and mitigation planning, etc., this Municipality shall comprehensively consider the needs for safety risk prevention and control, conduct overall planning of aboveground and underground spaces and integrated upgrading and transformation, and advance resilient urban development.

This Municipality shall, according to the State provisions, adopt a system of eliminating the technologies and equipment that seriously affect production safety. When examining and approving projects involving production-safety-endangering technologies and equipment listed in the elimination catalogues of this Municipality and the State, the relevant departments of this Municipality shall strictly restrict their introduction and market access.

Article 21

The safe production supervision and administration departments shall, according to the State and municipal provisions, establish an early warning system to monitor major danger sources so as to provide warning tips, information gathering and abnormal situation analysis found in the major danger sources, which shall serve as an important reference for the follow-up supervisory measures.  

The safe production supervision and administration departments may entrust professional technical service agencies to track and analyze the video images and monitoring data of the production and business units that have been included in the early warning system against major danger sources.

Article 22

This Municipality shall exercise unified planning, rational layout and rigorous control of dangerous chemicals.

When drawing up the territorial space planning, the relevant departments of this Municipality shall, in the light of the actual circumstance of this Municipality, plan special areas for the production and storage of dangerous chemicals and areas prohibited from projects of dangerous chemicals production and storage.  

　　With regard to the existing dangerous chemicals production and storage projects in the areas prohibited by the territorial space planning from developing dangerous chemicals production and storage projects, the emergency management commissions shall, jointly with the relevant departments, urge the production and business units to make adjustments within the prescribed time limit. Where these existing projects need to switch to other types of production, be relocated, or close down, the municipal or district people’s governments shall organize the relevant departments to implement the changes.

The municipal emergency management commission and economy and informatization department shall, jointly with relevant departments, formulate a catalogue for guiding the structural adjustments of the dangerous chemicals industry in this Municipality.

Article 23

The municipal emergency management commission shall, jointly with the municipal departments of economy and informatization, development and reform, public security, transportation, maritime safety, ecology and environment, etc., formulate the catalogues of the production, storage, business, use and transportation of prohibited, restricted and controlled dangerous chemicals, and publish the catalogues.

The Municipality shall establish an information system of whole-process monitoring of the dangerous chemicals to conduct whole-process information management and monitoring of such links as the production, storage, transportation, business operation, use and disposal, and shall achieve information connectivity and sharing among the enterprises, supervision departments and emergency rescue departments  

Chapter III  Joint Social Governance

Article 24

The people’s governments at all levels and their relevant departments shall adopt various forms and use convergence media and platforms to increase public awareness of production safety, regularly organize emergency rescue drills, and elevate the capabilities for accident prevention, self-rescue and mutual rescue.

The trade unions, youth leagues, women’s federations and other people’s organizations shall, according to law, safeguard employees’ right to know, participate and supervise.

Article 25

The people’s governments at all levels and their relevant departments shall strengthen publicity and education on safe production laws, regulations and the knowledge of safe production.

The municipal departments of education, human resources and social security, etc. shall include safety knowledge popularization in the education of the public, establish and improve safety education in schools and the educational systems of occupational safety among high-risk industries, and include safety education in the training of relevant skills.   

The press, radio, television, websites, etc. shall strengthen public-welfare publicity on production safety, and conduct supervision by public opinions over acts in violation of safe production laws and regulations.

Article 26

If any unit or individual finds major risks, potential accidents and illegal acts against safe production, it/he may record them with photos and videos, and submit reports and tip-offs to the safe production supervision and administration departments by such means as the Citizens Service Hotline 12345, On-the-spot Photo/video Shooting and Uploading, various departments’ informants’ hotlines and websites, and complaint letters and visits.

The safe production supervision and administration departments shall improve the handling procedures including acceptance, verification, processing, coordination, urging the processing, transferring to a relevant department, replies, rewards, statistics, and reports, and shall handle the reports or complaints promptly, keep the information about the reporters and informants confidential, and protect their legitimate rights and interests. With regard to the meritorious persons who have reported major risks and major potential accidents in production safety, or have reported illegal acts against safe production, they shall be rewarded according to law.

Article 27

The relevant trade associations shall strengthen self-discipline according to laws, rules and the articles of association, and do the following work:

　　1. coordinating and conducting identification, assessment and monitoring of safety risks in their respective fields;

　　2. organizing the formulation of safe production standards for the whole groups, and making suggestions on formulating or revising state standards and trade standards of production safety;  

　　3. providing service in training, technical consultation, and guidance;

　  4. promoting the application of the state-of-the-art technologies and best practice in safe production;  

　　5. studying professional and technical difficulties in safe production; and

　　6. other work that can improve production safety in their industries.

Article 28

This Municipality shall support intermediary service agencies to offer socialized services such as assessment, testing, inspection, supervision and training in safe production.

The intermediary service agencies engaged in socialized services in safe production shall have the qualifications or conditions prescribed by laws and administrative rules, and can provide production and business units and relevant government departments with professional and technical services, and improve their technical capabilities and service abilities, and bear liabilities for the service they have provided.

The safe production supervision and administration departments may, jointly with relevant trade associations, promote the establishment of mechanisms of guidance, assessment and publicizing, and they shall inform each other in a timely manner about the assessment information of the intermediary service agencies’ administrative supervision and service.

Article 29

This Municipality shall establish and improve a safe-production expert database. The safe production supervision and administration departments may, where necessary, select experts from the database to form expert groups to provide suggestions on decision-making for the following safe production issues:

1. assessment and prediction of major safe-production risks and trends;

2. the formulation, drills and assessment of important planning, policies and emergency response plans related to production safety; or

3. other major issues in this Municipality’s safe production work that are of long-term, overall and strategic significance.

Article 30

The production and business units that fall into the high-risk industries and sectors stipulated by the State shall buy safe production responsibility insurance. This Municipality encourages production and business units in other industries and sectors to buy safe production responsibility insurance, and encourages the development and application of safe-production-related insurance products.  

The insurance institutions shall enhance their service of technical prevention of accidents, conduct such work as risk identification and assessment, potential accident identification, and safety administration and training, and set up mechanisms for rapid claim settlement and advance indemnity payment.

Article 31

Where illegal acts against safe production have caused major potential accidents or actual major accidents, thus harming the state interests or public interests, the people's procuratorate may file public-interest lawsuits in accordance with the relevant provisions of the civil procedure law and the administrative procedure law.

The people's procuratorates may conduct on-the-spot investigation and verification, collect and fix evidence if required by the cases they are handling, and the production and business units shall cooperate and relevant departments shall render assistance.

Article 32

While selecting suppliers and partners, large enterprise groups and chain operation enterprises are encouraged to comprehensively assess the safe production conditions, safe production standardization development, and risk control of the suppliers and partners so as to encourage the upstream and downstream production and business units to improve their safe production management.

The headquarters of enterprise groups shall strengthen, according to law, guidance, oversight, examination and rewards for their subordinate enterprises’ safe production, and shall guide and supervise the safe production of their associated enterprises such as franchises, and promote the application of best safe-production practice in order to achieve unified management in safe production.

Large enterprise groups and chain operation enterprises are encouraged to formulate, implement and popularize safe-production enterprise standards that are higher than the State and industry standards.

Chapter IV  Safe Production Guarantee of Production and Business Units

Article 33

The production and business units shall establish and improve the following safe production management system encompassing the whole process and all links of the safe production and business, strengthen the management of safe production standardization, clarify relevant operating procedures, and urge and guarantee implementation at all levels and posts:

1. a system of safe production responsibility for all employees and a system of penalties and rewards;

2. a system of safe production meetings;

3. an administrative system for safe production investment and expenditure;

4. an administrative system for education, traini......