工商总局关于推行企业登记全程电子化工作的意见

工商企注字〔2017〕43号

  各省、自治区、直辖市及计划单列市、副省级市工商行政管理局、市场监督管理部门：

  为进一步提高企业登记管理的便利化、规范化、信息化水平，根据《国务院关于印发注册资本登记制度改革方案的通知》(国发〔2014〕7号)、《国务院关于加快推进“互联网+政务服务”工作的指导意见》(国发〔2016〕55号)精神，现就推行企业登记全程电子化工作，提出以下意见。

一、总体要求

  （一）指导思想。

  按照党中央、国务院深化商事制度改革的决策部署，以工商注册制度便利化为主题，持续推进简政放权、放管结合、优化服务，最大程度利企便民，让企业和群众办事更方便、更快捷、更高效，激发企业创新创业活力，共享“互联网+政务服务”发展成果。

  （二）工作目标。

  以企业登记全程便捷、高效、利民为目标，在保留窗口登记的同时，2017年10月底前开通涵盖所有业务、适用所有企业类型的网上登记系统，实现各类型企业的设立、变更、备案、注销等各个业务环节均可通过互联网办理，有条件的地方逐步实施无纸全程电子化登记。

  （三）基本原则。

  1.统筹规划。充分利用已有资源设施，按照总局统一标准规范要求，在当地党委政府的领导下，加强集约化建设，统筹考虑窗口登记、全程电子化登记和电子营业执照建设的需要，建立符合全程电子化登记要求和特点的企业登记流程，做好现有企业登记系统的升级改造。

  2.问题导向。从解决人民群众反映强烈的办事难、办事慢、办事繁等问题出发，简化办事流程，建立完善企业全程电子化登记管理系统，为申请人提供渠道多样、业务全面、简便易用的企业登记服务。不得向企业收取任何费用，不得增加企业负担。

  3.便捷高效。充分利用电子化、网络化的优势，通过申请人外网申请—工作人员内网审核—审核结果外网反馈运行模式，实现企业全程电子化登记。现阶段，为方便企业办事，尊重企业的办事途径选择权利，申请人可自主选择窗口登记或全程电子化登记方式。

  4.安全可靠。利用合规技术手段，保障全程电子化登记安全可信、稳定可靠。规范企业电子登记档案的采集、加工、存储和管理，确保电子档案的真实、完整、有效。

二、工作任务

  （一）构建登记流程规范。

  1.优化登记流程。通过全程电子化登记管理系统申请办理登记业务的，申请人按系统提示进行用户注册、网上填报登记信息、网上签名提交，登记机关对申请人提交的材料进行审查后网上核准、发照、归档并予以公示企业相关信息。选择无纸全程电子化登记的，申请人无需到登记窗口提交纸质申请材料。

  2.统一文书规范。按照法律法规等相关规定，从方便企业办事、简化登记手续出发，总局组织修订企业登记《申请文书规范》和《提交材料规范》，各地按照总局公布的有关规范进行系统改造，整合优化填报内容，方便企业使用，兼顾考虑窗口登记、全程电子化登记的需要。

  3.多种登记方式并行。充分考虑企业登记申请的便利性，各地在开通企业全程电子化登记的同时，仍然提供窗口登记服务等方式。不同方式申请企业登记的，都应生成电子营业执照。申请人在获得电子营业执照的同时，也可以选择领取纸质营业执照。

  4.利用信息化手段辅助审查。登记机关要充分利用信息化技术完善网上登记系统功能，以更加智能化手段辅助登记机关对登记申请材料进行形式审查，提高登记效率。申请人对提交材料的真实性、合法性负责。股东与公司、股东与股东之间因工商登记争议引发民事纠纷时，要引导当事人依法向人民法院提起民事诉讼，寻求司法救济。

  （二）加快业务系统建设。

  1.建立企业全程电子化登记管理系统。网上登记是企业全程电子化登记有机构成部分，是企业全程电子化登记的初级阶段。2017年10月底前，各地登记机关要开通全区域、全类型、全环节的企业网上登记系统。已建成企业网上登记系统的，可在原有系统基础上升级改造，逐步实现各种类型企业申请、受理、核准、发照、公示等各环节均通过网上传输电子数据进行无纸全程电子化登记。有条件的地区可以直接建设无纸全程电子化登记系统，不必重复建设网上登记系统。全程电子化登记要与窗口登记无缝衔接，形成线上线下功能互补、相辅相成的政务服务新模式。

  2.规范用户管理。申请人使用企业全程电子化登记管理系统时应当进行在线用户注册。自然人注册应提交真实准确的姓名、身份证件、手机号码、影像等信息，系统采用与合法有效的身份认证系统联网自动比对方式，实现自动确认；法人和其他组织注册应提交单位名称、身份证件、法定代表人（负责人）等有关人员手机号码等信息，系统通过国家法人库或国家企业信用信息公示系统平台获取信息，实现自动确认；无法通过上述方式进行确认的，申请人通过系统以电子数据形式提交主体身份信息材料即可。地方政务服务平台（网上统一身份认证体系）满足上述确认要求的，可对接使用。

  3.实现电子签名。通过全程电子化登记方式申请的，材料签署人应在提交的电子申请材料上电子签名。自然人由其本人签名，法人和其他组织由其法定有权签字人签名。符合电子签名法或具有不可更改不可抵赖的，通过系统在手机、电脑等设备上签名或对数据电文进行真实意思表达和确认的，均视为有效电子签名。经申请人电子签名的申请材料，视为符合法定形式。

  4.建立痕迹追溯机制。全程电子化登记管理系统应当采用必要的管理措施和技术手段，实现对用户注册、提交申请、网上签名、受理审核、发照归档等环节产生的数据及操作过程留痕管理，做到可追溯、可查询，确保全程电子化登记各环节安全可信。

  5.创新系统服务模式。全程电子化登记管理系统根据填报内容自动生成整套登记申请材料。各地可按照相关法律法规、数据标准以及登记和监管信息为申请人提供智能填报、查验提醒和移动客户端等服务。

  （三）加强电子档案管理。

  1.电子档案的归集。全程电子化登记形成的原始电子申请材料、登记机关电子审核表单及相关数据库文件、图像等符合法律规定的数据电文即为电子档案，与纸质档案具有同等法律效力。各地要做好电子档案的归集工作，无论采取哪种技术手段采集的数据，都要按照总局公布的企业登记《申请文书规范》等文件要求统一生成电子档案。

  2.电子档案的保存。各地应当加强电子档案管理，要采用合规的安全技术手段，确保电子档案的真实、可信、可靠、完整和可用。积极支持和配合当地档案管理部门档案管理工作，按规定交由当地档案管理部门保管的企业电子档案，本部门档案管理部门也要永久保存该企业电子档案备查。

  3.电子档案的利用。登记机关按照相关规定提供电子档案信息查询，发挥电子档案易于共享的优势，逐步推行电子档案自助查询服务。涉及个人和企业隐私、商业秘密及其它敏感信息要采取有效措施予以保护，涉密信息应当符合国家有关保密安全的要求。

  4.电子档案的迁移。通过全程电子化登记的企业需迁移变更登记机关的，原登记机关应将其电子档案及时移交迁入地登记机关，有纸质档案的一并移交。无法实现数据对接的，移交加盖档案查询印章的电子档案打印件。原登记机关应当继续保存已迁移企业的电子档案数据，确保可追溯、可查询。移交与接收的电子档案应当真实可靠、齐全完整、安全可用。

  （四）加强信息公示和信用监管。

  1.及时公示信息。经核准登记的企业，登记机关按照企业信息公示相关规定，对企业基本信息和电子营业执照通过国家企业信用信息公示系统进行公示，全面融入“互联网+政务服务”，推进企业登记基本信息和电子营业执照在部门间互通互认和共享共用。

  2.加强惩戒措施。对全程电子化登记过程中提供虚假身份、提交虚假材料（文件）等恶意行为，依法进行查处并限制相关人员办理企业全程电子化登记。冒用他人身份证或网上冒用他人身份签名骗取登记的，支持被侵权人依法向公安机关举报，或向有管辖权的人民法院提起民事诉讼或直接向法院提起撤销登记的行政诉讼来保护其权利。登记机关应依据法院生效判决，或依被侵权人书面申请和公安机关处罚决定冒用的事实，对相关登记事项依法予以处理。

三、工作要求

  （一）强化组织领导。

  各地要高度重视，充分认识企业登记全程电子化创新改革的重要意义，切实加强组织领导，周密安排部署，有计划、分阶段、稳步推进企业登记全程电子化工作。

  （二）加强沟通协调。

  各地要积极协调，统筹调度，在当地党委政府的领导下，研究和制定实施方案，争取政策、资金、技术、人员等方面的支持，推动建立各部门参与、分工合作、互通互认、共享共用的联动机制，确保改革各项举措的有序开展、落地生根。

  （三）组织宣传培训。

  各地要充分利用电视、报刊、网络等各种媒介做好舆情引导，广泛宣传企业登记全程电子化的便利性，推动形成社会共识，积极营造全社会了解改革、支持改革、参与改革的良好氛围。要加强对企业登记相关工作人员的业务培训，帮助其全面掌握全程电子化登记业务流程、材料规范、操作规程，为推进企业登记全程电子化工作打好基础。

  （四）做好服务保障。

  各地要建立企业用户咨询机制，鼓励和帮助企业使用企业全程电子化登记管理系统，在电话、互联网、移动平台等咨询方式中，统一服务口径，及时解答和回应企业使用中遇到的问题。

  已经开展企业登记全程电子化试点的地方，要做好试点成效评估，完善工作方案和技术方案，进一步提升服务水平，全面推进此项工作。

工商总局

2017年4月10日

  Opinions of the State Administration for Industry and Commerce on Promoting the Whole-Process Electronic Registration of Enterprises

  No. 43 [2017] of the State Administration for Industry and Commerce

  The administrations for industry and commerce and market regulatory departments of all provinces， autonomous regions， municipalities directly under the Central Government， cities under separate state planning and sub-provincial cities:

  In order to further enhance the facilitation， standardization and information technology of the enterprise registration administration， the following opinions on promoting the whole-process electronic registration of enterprises are hereby offered in accordance with the Notice of the State Council on Issuing the Scheme for the Registration System Reform of Registered Capital (Guo FaNo. 7[2014]) and the Guiding Opinions of the State Council on Accelerating the Promotion of the "Internet + Government Services" Work (Guo FaNo. 55 [2016]).

  I. General Requirements

  1. Guiding ideology

  In accordance with the decisions and arrangements of the CPC Central Committee and the State Council on deepening the reform of the commercial affair system， with the facilitation of the industrial and commercial registration system as the theme， the reforms to simplify procedures， decentralize powers， enhance supervision， and optimize public services shall be constantly promoted， so as to enhance the benefits of enterprises and convenience for people to the fullest extent， provide more convenient， fast and efficient services for enterprises and the public， arouse the entrepreneurship and innovation vigor of enterprises， and share the “Internet plus government services” development results.

  2. Objectives

  With the aim of the convenience， efficiency， benefit to the people during the whole- process enterprise registration and window registration retained， the online registration system covering all businesses and applying to all types of enterprises will be launched by the end of October 2017，so as to achieve the online handling of all business links of all types of enterprises such as formation， modification， filing and cancellation， and the gradual implementation of the paperless whole-process electronic registration if possible.

  3. Basic principles

  (1) Overall planning. In accordance with the unified standards as required by the State Administration for Industry and Commerce (“SAIC”)， under the leadership of local Party committees and governments， the intensive construction shall be reinforced by fully utilizing existing resources and facilities. Overall consideration shall be given to the construction needs of the window registration， the whole-process electronic registration and the electronic business license to create the enterprise registration process in line with the whole- process electronic registration requirements and characteristics and effectively upgrade and revamp the current enterprise registration system.

  (2) Problem orientation. Proceeding from resolving such problems attracting great public concerns as the difficult， inefficient and cumbersome services， the work process shall be streamlined and the administration system of the whole-process electronic registration of enterprises shall be established and improved to offer applicants the enterprise registration services with diverse channels， comprehensive businesses and ease of use. No fees may be charged from enterprises and it is not allowed to increase the burden on enterprises.

  (3) Convenience and efficiency. The operation mode of “filing an application by an applicant via external network， conducting examination by the staff via internal network， and giving feedbacks on the examination result via external network” by making full use of the electronic and network advantages shall be adopted to realize the whole-process electronic registration of an enterprise. At the current stage， in order to provide convenience for enterprises' handling of affairs and respect their rights to choose the handling channel， the applicant may independently choose the window or whole- process electronic registration mode.

  (4) Safety and reliability. The safe， credible， stable and reliable whole- process electronic registration shall be guaranteed through lawful technical means. The collection， processing， storage and management of the enterprise electronic archives shall be regulated to ensure the authenticity， integrity and validity of electronic archives.

  II. Major Tasks

  1. Establish the registration process and standards.

  (1) Optimize the registration process. The applicant for registration through the administration system of the whole-process electronic registration of enterprises shall， by reference to prompt messages of the system， conduct the user registration， enter the registration information online， and submit such information after signing online. After the examination over materials of the applicant by the registration authority， it shall conduct the confirmation， license issuance， filing and announcement online. The applicant choosing the paperless whole-process electronic registration is not required to submit paper application materials at the registration window.

  (2) Unify document standards. In accordance with laws， regulations， and other relevant provisions and from the perspectives of convenience for enterprises and simplification of registration formalities， the SAIC organizes the revision of the Standards on Enterprise Registration Application Documents and the Standards on the Materials Submitted for Enterprise Registration. Giving equal consideration to the requirements for the window registration and the whole-process electronic registration， all localities shall carry out the systematic improvement and integrate and optimize contents to be entered for the enterprises’ convenience according to relevant standards issued by the SAIC.

  (3) Parallelize multiple registration methods Taking into consideration the facilitation of enterprise registration application， all localities shall continue to provide window registration services， etc. while opening up the whole-process electronic business registration. An electronic business license shall be created， no matter what method for business registration application is used. The applicant can request for the paper business license while getting the electronic version.

  4. Assist examination with information-based means The registration authorities should make full use of information technology to improve the function of the online registration system， and use more intelligent means to assist the registration authority in the formal examination of the registration application materials and improve the registration efficiency. The applicants are responsible for the authenticity and legality of the materials submitted. Where civil disputes between the shareholders and the company and between shareholders are aroused from the business registration， the parties shall be guided to file a civil lawsuit in the people’s court in accordance with the law and seek judicial remedies.

  2. Accelerate construction of the business system

  (1) Establish the management system for whole-process enterprise electronic registration Online registration， as an integral part of the whole-process electronic registration of enterprises， is the initial stage of the process. By the end of October， 2017， the registration authorities in all localities shall activate the all-region， all-type and all-step online registration system for enterprises. If an online registration system for enterprises has been established， it can be upgraded and transformed on the basis of the original system， and various stages of application， acceptance， approval， licensing， publicity of all types of enterprises can be electronically registered through online transmission of electronic data. Eligible regions can directly establish the paperless whole-process electronic registration， with no need to repeatedly construct the online registration system. There shall be seamless connection between the whole-process electronic registration and the window registration to form a new government service pattern with functional complementation between the online and the offline.

  (2) Standardize user management The applicant using the whole-process electronic registration and management system shall register as an online user. When registering， a natural person shall submit true and accurate information such as name， identity card， mobile phone number and image while the system makes automatic confirmation by making automatic comparisons in the legal and effective identity authentication system. A corporate body or any of the other organizations shall submit information including name of the entity， identity certificate and mobile phone numbers of relevant persons like the legal representative (principal) and the system makes automatic confirmation after acquiring information from the national legal person database or national enterprise credit information disclosure system platform; An applicant that is not able to make confirmation by any of the above-mentioned methods may submit the subject identity information and materials in the electronic form. If any local government service platform (online unified identity authentication system) satisfies the above-mentioned confirmation requirements， it can be directly connected.

  3. Realize electronic signature. In case of application by means of whole-process electronic registrations， the material signatory shall leave electronic signatures in the electronic application materials to be submitted. A natural person shall sign personally while a corporate body or other organization shall sign by its authorized signatory. Any electronic signature that is in compliance with the Electronic Signature Law or bears the nature of irreversibility and non-repudiation and is signed or presents true meaning and confirms data messages on devices like mobile phones or computers through the system shall be deemed as valid. The application materials electronically signed by the applicant shall be deemed as compliant with the legal form.

  (4) Establish the traceability mechanism. The whole-process electronic registration and management system shall take necessary administrative measures and technical means to realize trace management of data and processes generated in such steps as user registration， application submission， online signature， acceptance and review and license issuance and filing， so as to make all of them traceable and searchable and make sure all steps of the whole-process electronic registration secure and reliable.

  (5) Innovate the system service mode. The whole-process electronic registration and management shall automatically generate a complete registration and application material package on the basis of the contents filled in. All localities may， pursuant to relevant laws and regulations， data standards and registration and regulatory information， provide services including intelligent filling-in， check reminder and mobile client for the applicants.

  3. Strengthen electronic file management.

  (1) Collection of electronic files. All data messages complying with legal regulations， such as original electronic application materials， electronic examination forms of the registration authority and related database files and images generated in the whole-process electronic registration are electronic files and have the same legal validity with paper files. All localities shall properly collect and sort electronic films. The data acquired through whatever technical means shall uniformly generate electronic files in accordance with the requirements in documents like the Standards on Enterprise Registration Application Documents issued by SAIC.

  (2) Storage of electronic files. All localities shall strengthen management of electronic files and apply compliant security technologies and means to ensure authenticity， credibility， reliability， completeness and availability of the electronic files. You shall also actively support and cooperate with local file management departments for file management. In case of the electronic files of an enterprise that shall be forwarded to local file management departments for custody according to provisions， the file management department of the handling authority shall also make permanent storage for future inquiry.

  (3) Utilization of electronic files. The registration authority shall provide electronic file information query in accordance with relevant provisions to leverage such advantages of electronic files as sharing friendliness and gradually promote self-service enquiry of electronic files. Effective measures shall be taken to protect information involving individual or enterprise privacy， trade secrets and other sensitive information. All confidential information shall comply with relevant national requirements regarding confidentiality and security.

  (4) Transfer of electronic files. In case an enterprise adopting whole-process electronic registration needs to relocate and change the registration authority， the original registration authority shall hand over the electronic files to the destination registration authority， together with the paper files， if any. In case data connection is impossible， the printing copies of the electronic files with the file enquiry stamps shall be transferred. The original registration authority shall continue to store the electronic file data of the enterprise already relocated， so as to ensure traceability and searchability. The electronic files handed over and taken over shall be true and credible， full and complete and safe and usable.

  4. Strengthen information publicity and credit supervision.

  (1) Publicize information in a timely manner. For enterprises that have been approved for registration， the registration authority shall publicize the basic information and electronic business license of the enterprise through the national enterprise credit information disclosure system in accordance with relevant provisions of the enterprise information disclosure， fully integrate the “Internet Plus government service”， and promote mutual communication， recognition and sharing of the basic information and electronic business licenses of enterprises between the departments.

  (2) Intensify punishment measures. Malicious acts， such as providing false identities and submitting false materials (documents) in the process of whole-process electronic registration shall be investigated and treated by law and relevant personnel shall be restricted from handling whole-process electronic registration of enterprises. In case of fraudulent registration by counterfeiting others’ identity cards or others’ online identity signatures， the infringed person will be supported to safeguard rights by reporting to the public security authority by law， or file a civil lawsuit to the competent people’s court or directly bring an administrative suit for registration cancellation. The registration authority shall dispose relevant registration items by law and according to the legally effective judgement of the court， or the written application of the infringed and the penalty decision by the public security authority affirming the fact of counterfeiting.

  III. Working Requirements

  1. Reinforce organization and leadership.

  All localities shall pay high attention to and fully understand the great significance of the innovation and reform of whole-process electronic registration for enterprises， reinforce organization and leadership in earnest， and make structured plans to promote the work in this regard in a planned， phased and stable manner.

  2. Intensify communication and coordination.

  All localities shall make active coordination and overall dispatch， study and formulate implementation programs under the leadership of the local CPC Committees and People’s Governments， rally supports for policy， fund， technology and personnel and advance the establishment of a linked mechanism for participation， division of work， cooperation， mutual communication and recognition and sharing between all departments to ensure orderly implementation and consolidation of all reform measures.

  3. Organize publicity and training.

  All localities shall fully leverage media including TV， newspaper and Internet for proper public opinion guidance， widely publicize the convenience of the whole-process electronic registration for enterprises， promote the formation of a social consensus and actively create a sound atmosphere of understanding， supporting and participating in the reform of the whole society. All localities shall strengthen business trainings for staff related to business registration， so as to help them fully master business flows， material specifications and operating rules for the whole-process electronic registration and lay a solid foundation for the implementation of the work.

  4. Provide proper service guarantee.

  All localities shall establish the user enquiry mechanism， encourage and help enterprises to use the whole-process electronic registration and management system， unify service approaches in the enquiry methods of the telephone， Internet and mobile platform and explain and respond to problems encountered by enterprises in use.

  Localities where the pilots of whole-process electronic registration of enterprises are already carried out shall make proper performance evaluation on the pilot and improve working programs and technical solutions， so as to further raise the service level and comprehensively advance the work.

  State Administration for Industry and Commerce

  April 10， 2017