diff --git a/convlab2/policy/mle/crosswoz/loader.py b/convlab2/policy/mle/crosswoz/loader.py
index d3f160cc458a5fa425fb94c65e8614c6bb54e524..c29c11cabdfc95de0ab220114e3d08165962d695 100755
--- a/convlab2/policy/mle/crosswoz/loader.py
+++ b/convlab2/policy/mle/crosswoz/loader.py
@@ -45,6 +45,7 @@ class PolicyDataLoaderCrossWoz():
                 dst.init_session()
                 for i, turn in enumerate(sess):
                     if turn['role'] == 'usr':
+                        dst.state['user_action'] = turn['dialog_act']
                         dst.update(usr_da=turn['dialog_act'])
                         if i + 2 == len(sess):
                             dst.state['terminated'] = True
diff --git a/convlab2/policy/rule/multiwoz/rule_based_multiwoz_bot.py b/convlab2/policy/rule/multiwoz/rule_based_multiwoz_bot.py
index 768393658697fa9e239f81f49c17258f76a73c43..06e85eb2bf1e4415115442093d5f46ca9fe53d58 100755
--- a/convlab2/policy/rule/multiwoz/rule_based_multiwoz_bot.py
+++ b/convlab2/policy/rule/multiwoz/rule_based_multiwoz_bot.py
@@ -114,7 +114,7 @@ class RuleBasedMultiwozBot(Policy):
 
         # print("Sys action: ", DA)
 
-        if DA == {}:
+        if len([domain_intent for domain_intent, slots in DA.items() if slots or 'nooffer' in domain_intent.lower()]) == 0:
             DA = {'general-greet': [['none', 'none']]}
         tuples = []
         for domain_intent, svs in DA.items():
@@ -201,6 +201,17 @@ class RuleBasedMultiwozBot(Policy):
                 self.choice = ""
             elif self.recommend_flag == 1:
                 self.recommend_flag == 0
+
+            if len(kb_result) == 0:
+                if (domain + "-NoOffer") not in DA:
+                    DA[domain + "-NoOffer"] = []
+
+                for slot in state['belief_state'][domain.lower()]['semi']:
+                    if state['belief_state'][domain.lower()]['semi'][slot] != "" and \
+                            state['belief_state'][domain.lower()]['semi'][slot] not in ["do nt care", "do n't care",
+                                                                                        "dontcare"]:
+                        slot_name = REF_USR_DA[domain].get(slot, slot)
+                        DA[domain + "-NoOffer"].append([slot_name, state['belief_state'][domain.lower()]['semi'][slot]])
             if (domain + "-Inform") not in DA:
                 DA[domain + "-Inform"] = []
             for slot in user_action[user_act]: