国务院办公厅转发民政部关于进一步加强公墓管理意见的通知

Circular of the General Office of the State Council Concerning Transmitting Suggestions Submitted by the Ministry of Civil Affairs on Further Strengthening the Management of Cemeteries

殡葬改革是一项移风易俗的社会改革，是社会主义精神文明建设的组成部分。

Reform in the funeral system is to carry out a social reform changing customs and traditions as a component part in the construction of socialist spiritual civilization. 

公墓管理是殡葬改革的重要内容。

The management of cemeteries is the important content of the reform of the funeral system. 

建国４０多年来，我国的殡葬改革取得了可喜的成绩，但在公墓建设和管理中也存在着一些不容忽视的问题。

For over 40 years since the founding of our People’s Republic, gratifying achievements have been made in our country’s reform of the funeral system. However, there are still some problems we cannot ignore in the construction and management of cemeteries. 

如：一些地方乱批乱建公墓、浪费土地资源、破坏生态环境和借办丧事之机大搞封建迷信活动；

For instance, some localities approve the construction of cemeteries without planning, resulting in the waste of land resources, the deterioration of ecological environment and the prevalence of feudal superstition on the excuse of making funeral arrangements;

有的公墓（塔陵园）单位利用墓穴和骨灰存放格位进行传销和炒买炒卖等不正当营销活动，损害了群众的利益，引发出一些不安定因素。

some units operating cemeteries (or pagoda cemeteries) conduct illegal marketing activities such as pyramid sales of and speculation in graves and cells for the storage of ashes, which have infringed on the interests of the masses and produced some factors of insecurity. 

这些问题严重地影响了殡葬改革和社会主义两个文明建设。

These problems gravely affect the reform of the funeral system and the construction of socialist material and spiritual civilization. 

地方各级人民政府和有关单位要充分认识公墓建设和管理的重要性，切实加强领导，采取坚决有效措施，加大公墓管理的力度，抓好殡葬改革工作。

Local people’s governments at various levels and units concerned should make full understanding of the importance of the construction and management of cemeteries, conscientiously strengthen the leadership and take resolute and effective measures to intensify the management of cemeteries and do a good job in the reform of the funeral system.

经国务院批准，现将民政部《关于进一步加强公墓管理的意见》转发给你们，请结合实际情况，认真贯彻执行。

With the approval of the State Council, we hereby transmit to you the Suggestions Submitted by the Ministry of Civil Affairs on Further Strengthening the Management of Cemeteries. You are required to implement them seriously in the light of actual situations.

关于进一步加强公墓管理的意见

APPENDIX: SUGGESTIONS ON FURTHER STRENGTHENING THE MANAGEMENT OF CEMETERIES 

（民政部一九九八年一月六日）

(Submitted by the Ministry of Civil Affairs on January 6, 1998) 

近年来，地方各级民政部门根据国务院批转《民政部关于加强公墓管理的报告》和民政部《公墓管理暂行办法》，加强了对公墓（含塔陵园等骨灰存放设施，下同）的管理，取得了一定成效，对推进殡葬改革起到了积极作用。

In recent years, local departments of civil affairs at various levels have made some achievements in strengthening the management of cemeteries (including facilities for the storage of ashes such as pagoda cemeteries, the same below) in accordance with the Report Submitted by the Ministry of Civil Affairs on Strengthening the Management of Cemeteries and the Provisional Measures of the Ministry of Civil Affairs for the Management of Cemeteries, approved and transmitted by the State Council, and have made positive contributions to promoting the reform of the funeral system. 

但是，当前公墓建设和管理中仍存在一些不容忽视的问题。

However, there are still some problems at present we cannot ignore in the construction and management of cemeteries. 

有的部门、单位和个人无视国家对公墓管理的规定，乱批乱建公墓，浪费了土地资源，破坏了生态环境，同时引发出大量的封建迷信活动，滋长了丧事大操大办的陈规陋习；

Some departments, units or individuals, in defiance of the provisions of the state on the management of cemeteries, approve the construction of cemeteries without planning, resulting in the waste of land resources and the deterioration of ecological environment, and consequently, a large quantity of activities of feudal superstition have reappeared and funeral arrangements become more extravagant following outmoded conventions. 

有的公墓单位为牟取暴利，把骨灰存放格位混同一般产品，以增值为诱饵，欺骗群众竞相购买，大肆进行传销和炒买炒卖等不正当营销活动，损害了群众的利益，引发出一些不安定因素。

Some units operating cemeteries, for the purpose of seeking illegitimate profits, confuse cells for the storage of ashes with general commodities, use appreciation as bait, deceive the masses into scrambling for the cells by purchase, unscrupulously conduct illegal marketing activities of pyramid sales and speculation, which have infringed on the interests of the masses and produced some factors of insecurity. 

这些问题严重地影响了殡葬改革和社会主义两个文明建设。

These problems gravely affect the reform of the funeral system and the construction of socialist material and spiritual civilization. 

为认真贯彻落实国务院发布的《殡葬管理条例》，保护土地资源，促进两个文明建设和维护社会稳定，必须采取切实有效措施，进一步加强公墓管理工作。为此，特提出以下意见。

In order to conscientiously implement the Regulations on the Administration of Funeral Activities promulgated by the State Council, protect land resources, promote the construction of material and spiritual civilization and maintain social stability, actual and effective measures must be taken to further strengthen the management of cemeteries. Accordingly, we hereby offer the following suggestions.

一、要认真开展清理整顿公墓的工作

1. To Conscientiously Develop a Program for Making Rectifications in the Management of Cemeteries 

各省、自治区、直辖市人民政府要组织民政、公安、土地、工商等有关部门，集中一段时间开展清理整顿公墓的工作。

People’s governments of provinces, autonomous regions and municipalities directly under the Central Government shall organize departments of civil affairs, public security, land administration, industry and commerce administration and other relevant departments in concentrating their work on developing a program for making rectifications in the management of cemeteries during a period of time.

（一）清理整顿的范围。

(1) Scope of Rectification 

１．未经省、自治区、直辖市民政厅（局）批准兴建的公墓和未经民政部或国家计委批准立项的吸收外资（含香港及澳门、台湾）合资合作兴建的公墓，即为非法公墓。

a. Illegal cemeteries, referring to those constructed without the approval of departments (or bureaus) of civil affairs under provinces, autonomous regions or municipalities directly under the Central Government, as well as those constructed in cooperation with overseas investors by absorbing overseas investments (including from Hong Kong, Macau and Taiwan) without the approval of the Ministry of Civil Affairs and the State Planning Commission.

２．虽经批准建立，但在公墓内修建封建迷信设施、搞违法营销活动或未经验收擅自经营的公墓单位。

b. Units operating cemeteries, though established with approval, building facilities for feudal superstition in cemeteries, conducting illegal marketing activities or putting cemeteries into operation without the acceptance procedures upon completion of the construction projects.

３．出售墓穴和骨灰存放格位，从事营销活动的公益性公墓。

c. Non-profit-making cemeteries selling graves and cells for the storage of ashes, engaging in marketing activities.

（二）清理整顿的措施。

(2) Measures of Rectification 

１．对在国家禁止建墓区域内兴建的非法公墓，必须取缔，所占的土地由土地管理部门依法处理。

a. Illegal cemeteries constructed within the areas in which the construction of cemeteries is prohibited by the state must be banned and the land occupied shall be handled by departments of land administration according to law. 

地方人民政府要根据具体情况研究切实可行的措施，妥善解决有关问题。

Local people’s governments shall, in the light of specific conditions, work out actual and feasible measures to properly solve problems involved.

２．对建在荒山瘠地、埋葬数量少的非法公墓，由当地政府责令兴建公墓的单位负责将已葬墓穴迁葬至合法公墓内；

b. With regard to illegal cemeteries constructed in barren hills or wasteland and with a small amount of tombs, local governments shall order units constructing these cemeteries to move tombs to legal cemeteries; 

对埋葬数量较大，一时难以迁葬的，要责令其停止出售墓穴，兴建公墓的单位要在限期内搞好绿化美化，接受政府殡葬管理部门或提供公墓养护费及绿化费，移交殡葬管理部门管理。

if the amount of tombs is so large that it is difficult to move them for the time being, sale of graves shall be stopped and units constructing these cemeteries shall plant trees to beautify the environment within a time limit and subject themselves to supervision of the government department in charge of funeral activities, or shall pay fees for maintaining cemeteries and fees for planting trees and transfer cemeteries to the government department in charge of funeral activities for management. 

待墓穴使用周期期满后，将墓穴迁出，恢复地貌。

Upon expiration of the period for use of graves, tombs must be moved and the land be restored to its original state.

对当地确实需要，又不违背公墓建设规划的非法公墓，兴建公墓的单位要按规定补办审批手续，接受政府殡葬管理部门的管理。

With regard to illegal cemeteries really needed in localities and not contravening the planning for the construction of cemeteries, units constructing cemeteries shall go through the examination and approval procedures and subject themselves to supervision of the government department in charge of funeral activities.

３．对在公墓内构建封建迷信设施和搞封建迷信活动的，要责令其停止封建迷信活动，限期拆除封建迷信设施。

c. Those who build facilities for feudal superstition or conduct activities of feudal superstition in cemeteries shall be ordered to stop activities of feudal superstition and demolish facilities for feudal superstition within a time limit. 

对不听劝阻，扰乱社会秩序的，依照《中华人民共和国治安管理处罚条例》予以处罚。

Anyone who disturbs the social order in disregard of dissuasion shall be penalized in accordance with the Regulations on Administrative Penalties for Public Security.

４．对利用墓穴和骨灰存放格位进行传销和炒买炒卖等不正当营销活动的，要采取措施坚决制止，同时要依据有关规定进行处罚。

d. Illegal marketing activities such as pyramid sales of and speculation in graves and cells for the storage of ashes shall be banned resolutely by taking some measures and shall be penalized according to relevant provisions.

５．对违反规定对外出售墓穴和骨灰存放格位的公益性公墓单位，要责令其停止营销活动，出售墓穴和骨灰存放格位按非法转让行为处理。

e. Non-profit-making cemeteries selling graves and cells for the storage of ashes in violation of provisions shall be ordered to stop the marketing activities. Sales of graves and cells for the storage of ashes shall be treated as illegal acts of transfer.

６．对《殡葬管理条例》发布以后未经批准建立的非法公墓，按《殡葬管理条例》第十八条规定处理。

f. Illegal cemeteries constructed without approval after the promulgation of the Regulations on the Administration of Funeral Activities shall be handled in accordance with the provisions of Article 18 of these Regulations.

二、要进一步加强对公墓的管理，严格控制公墓的发展

2. To Further Strengthen the Management of Cemeteries and Take Tight Control of the Development of Cemeteries 

（一）严格控制公墓的发展。

(1) To take tight control of the development of cemeteries. 

各省、自治区、直辖市民政部门要根据《殡葬管理条例》的规定，结合实际尽快制定公墓建设规划，由同级人民政府审批，报民政部备案。

Departments of civil affairs in provinces, autonomous regions and municipalities directly under the Central Government shall, in accordance with the provisions of the Regulations on the Administration of Funeral Activities and in the light of actual situations, work out the planning for the construction of cemeteries as soon as possible and, upon examination and approval of the people’s government at the corresponding level, submit it to the Ministry of Civil Affairs for the record.

在民政部同意备案之前，暂停批建新公墓。

Construction of new cemeteries shall be suspended before acceptance of the record by the Ministry of Civil Affairs. 

要大力推行骨灰寄存、骨灰植树和撒骨灰等不占或少占土地的骨灰处理方式。

Efforts shall be made to introduce the modes of handling ashes such as ashes storage, planting trees with ashes and ashes scattering, in which no land or less land will be occupied. 

骨灰寄存设施的建设要根据当地的人口数量及分布情况，合理规划；

The construction of facilities for the storage of ashes shall be planned rationally in the light of the population and its distribution in a locality. 

在暂不具备火葬条件的地区，遗体公墓必须科学规划，选址在荒山瘠地，严禁占用耕地、林地，同时要大力倡导深埋不留坟头的葬法。

In areas having not the conditions to practice cremation, cemeteries for remains must be planned in a scientific manner by selecting sites of cemeteries in barren hills and wasteland, banning the occupation of cultivated land and forest land and advocating deep burials without grave mounds left. 

火化区的公墓是现阶段处理骨灰的过渡形式，不是我国殡葬改革的方向，因此，要严格限制其发展。

Restrictions shall be placed on the development of cemeteries in areas practicing cremation because cemeteries there shall be deemed as a way of transition to handle ashes at the present stage and not the aim of our reform in the funeral system. 

今后，各地民政部门必须严格按照《殡葬管理条例》的规定和公墓建设规划，从严审批兴建公墓。

Departments of civil affairs in all localities must comply with the provisions of the Regulations on the Administration of Funeral Activities and the planning for the construction of cemeteries and shall be stricter from now on in examining and approving the construction of cemeteries.

（二）要严格限制墓穴占地面积和墓穴使用年限。

(2) To place strict restrictions on the land areas and periods for use of graves. 

今后埋葬骨灰的单人墓或者双人合葬墓占地面积不得超过１平方米，埋葬遗体的单人墓占地面积不得超过４平方米，双人合葬墓不得超过６平方米；

From now on, any tomb for burying ashes of one or two persons shall not cover an area of above one square meter; any tomb for burying remains of a single person not above four square meters and any tomb for burying remains of two persons not above six square meters. 

今后墓地和骨灰存放格位的使用年限原则上以２０年为一个周期。

From now on, 20 years shall not be exceeded in principle as the period for use of graves and cells for the storage of ashes.

（三）要切实加强公墓单位的内部管理。

(3) To conscientiously strengthen the internal management of units operating cemeteries. 

要搞好公墓的绿化美化，推行墓碑小型化、多样化，增加文化艺术含量；

Attention shall be paid to plant trees and beautify cemeteries, advocate small-size and diversified gravestones and give more cultural and artistic flavors. 

公墓单位要加强对公墓养护费、绿化费的提取和管理工作，单独建帐、专款专用并接受上级民政部门的监督。

Units operating cemeteries shall strengthen the collection and administration of fees for maintenance of cemeteries and fees for planting trees in cemeteries, set up a special account, use the fees for specified purposes and subject themselves to supervision of the department of civil affairs at the next higher level. 

在公墓内，严禁构建封建迷信设施和从事封建迷信活动；

Within cemeteries constructing facilities for feudal superstition and engaging in activities of feudal superstition shall be strictly prohibited.

严禁修建宗族墓地和修建活人墓。

Constructing cemeteries for clansmen and cemeteries for persons alive shall be strictly prohibited.

（四）各公墓单位原则上不得跨省设立销售机构。

(4) In principle all units operating cemeteries shall not establish trans-provincial sales agencies. 

有特殊情况需设立的，要经公墓单位所在地和设立销售机构所在地省级民政部门批准。

If it is necessary to establish such agencies due to special circumstances, approval shall be obtained from departments of civil affairs at the provincial level in two places where the unit operating a cemetery is located and where the sales agency is to be located. 

工商行政管理部门依据有关规定和两地省级民政部门批准文件予以登记注册。

The department for administration of industry and commerce shall handle the registration procedure according to relevant provisions and documents of approval from departments of civil affairs at the provincial levels in two places.

（五）严禁传销和炒买炒卖墓穴和骨灰存放格位。

(5) Pyramid sales of and speculation in graves and cells for the storage of ashes shall be strictly prohibited. 

要合理确定墓穴和骨灰存放格位的价格，明码标价；

Prices of graves and cells for the storage of ashes shall be fixed reasonably and marked clearly. 

要凭用户出具的火化证明（火葬区）或死亡证明（土葬改革区），提供或出售墓穴和骨灰存放格位，使用规范的安葬、安放凭证，建立严格的销售、登记制度，严禁传销和炒买炒卖；要保护群众的正当权益。

For supply or sale of graves and cells for the storage of ashes, subscribers shall be required to present the certification of cremation (in areas practicing cremation) or the certification of death (in reformed areas practicing burials in the ground) and measures shall be taken, such as using standardized burial and arrangement certificates and establishing a strict system for sales and registration, in order to prohibit pyramid sales and speculation and protect the legitimate interests of the masses.

（六）各省、自治区、直辖市民政部门要加强对辖区内公墓的管理。

(6) Departments of civil affairs in provinces, autonomous regions and municipalities directly under the Central Government shall strengthen the management of cemeteries within their respective administrative regions. 

要建立健全公墓年度检查制度，要会同有关部门认真开展公墓（含吸收外资合资合作的公墓）年度检查工作。

An annual inspection system for cemeteries shall be established and perfected, by which annual inspections of cemeteries (including ones constructed in cooperation with overseas investors) shall be conducted seriously in conjunction with other relevant departments. 

对年检合格的公墓准予继续开展业务；对年检不合格的公墓要限期改正，对逾期不改的，要会同有关部门责令其停业整顿。

Cemeteries having passed annual inspections may be allowed to continue their business, and those who fail in annual inspections shall be ordered to make corrections within a fixed time limit and, if they refuse to do so within the time limit, shall be ordered jointly by other relevant departments to suspend the business for rectifications. 

要将年检的结果公告社会，以便于监督。

The results of annual inspections shall be made public for supervision.

三、地方各级人民政府要加强领导，有关部门要相互支持、密切配合

3. Local People’s Governments at All Levels Should Strengthen Leadership and Relevant Departments Should Support and Closely Cooperate with Each Other.

地方各级人民政府和各有关部门要从国家的整体利益出发，提高对加强公墓管理工作重要性的认识，切实加强领导，把清理整顿公墓工作摆上重要的议事日程。

Local people’s governments at all levels and all relevant departments should proceed from the considerations of the whole country’s interests, deepen their understanding of the significance of strengthening the management of cemeteries, conscientiously strengthen leadership and place the rectifications program in cemeteries on the top of their agenda. 

这项工作涉及面广，难度较大。

The rectifications program involves a wide range of subjects and is difficult to develop. 

因此，各省、自治区、直辖市人民政府要结合当地实际，根据《殡葬管理条例》及有关规定，制订清理整顿公墓的具体办法；要做好协调工作，采取切实可行的措施加以落实。

Therefore, people’s governments of provinces, autonomous regions and municipalities directly under the Central Government should, in the light of actual situations of localities and in accordance with the Regulations on the Administration of Funeral Activities and other relevant provisions, work out detailed measures for the rectifications program in cemeteries and should coordinate their actions well and take actual and effective steps of implementation. 

同时，要注重宣传教育，争取广大群众的理解和支持，积极而又稳妥地开展清理整顿工作，切实解决工作中遇到的阻力和问题，保证清理整顿工作的顺利开展。

Meanwhile, attention should be paid to publicity and education in order to gain the understanding and support from the broad masses of the people, develop the rectifications program vigorously and steadily, really remove obstacles and resolve problems in the work and ensure the smooth progress in rectifications. 

各级民政部门作为主管部门，要切实履行职责，积极向当地人民政府反映清理整顿中存在的问题，提出解决问题的意见和建议，当好参谋助手。

Departments of civil affairs at all levels should play their roles as competent authorities, perform their functions in real earnest, report problems emerging in the rectifications in time to the local people’s government, offer suggestions for resolving these problems and act as capable advisers and assistants. 

要充分发挥基层民政部门和殡葬管理所的作用，促进清理整顿工作的顺利进行。

Considerations shall be given to departments of civil affairs at the grass-roots level and agencies for the administration of funeral activities by bringing into full plan their roles to promote the smooth progress in rectifications. 

公安、工商、土地管理等各有关部门要积极支持、密切配合，在当地政府的统一领导下，开展清理整顿公墓工作。

Departments for public security, industry and commerce administration and land administration and other relevant departments should firmly support and closely cooperate with each other and, under the unified leadership of the local government, develop the program for rectifications in cemeteries. 

以前越权批建公墓的基层人民政府或有关部门要积极主动地协助民政部门做好所批建公墓的清理工作。

People’s governments at the grass-roots level or relevant departments that have approved the construction of cemeteries beyond their respective terms of reference should take vigorous actions to assist departments of civil affairs in making rectifications in cemeteries to which they granted approval.

各省、自治区、直辖市民政厅（局）要及时将清理整顿公墓的情况，报告当地人民政府和民政部。

Departments (or bureaus) of civil affairs in provinces, autonomous regions and municipalities directly under the Central Government should report in time the progress in making rectifications in cemeteries to local people’s governments and the Ministry of Civil Affairs.