Financial pooling scheme to promote the use of notification

State Council on the issuance of promoting the use of financial pooling scheme

Guo Fa [2015] No. 35
Provinces, autonomous regions and municipalities, wagons, directly under the agency:
Now "to promote financial pooling scheme" issued to you, please conscientiously implement.
State council
June 16, 2015
(This piece publicly)
Promoting financial pooling scheme
To fully implement the Party's 18 and eighteenth sessions of the Second, Third and Fourth Plenary Session, implement the State Council decision to deploy, and further optimize financial resource allocation, improve effective use of finances and budget management system, and promote sustained economic and social health development, in accordance with the budget law and relevant regulations of the State Council, the development of the program.
First, the overall objectives and main principles
Promote co-ordination of financial resources, to avoid the use of funds "debris" and revitalize all areas "sleeping" financial resources, the "change" into "the whole money", co-ordination for the development of much-needed focus areas and priorities to protect the people's livelihood expenditure increase effective supply of funds, the macro-control is an innovative way of important content, but also fully live an active fiscal policy in key initiatives.
(A) the overall goal.
Promoting the use of fiscal funds to co-ordinate and combine deepen fiscal and tax reform, and consider the budget management system, medium-term fiscal planning, powers and expenditure responsibilities and other reforms. Problem-oriented, adhere to reform and innovation, and vigorously promote the use of fiscal funds overall, and continuously improve effective use of finances and promote sustained and healthy economic and social development. The immediate objective is: to revitalize the financial precipitation funds made significant progress in all areas, initially established using the pooling of financial mechanisms to promote steady growth, structural adjustment. Long-term goal is: to use the mechanisms of financial pooling more mature, will all budgetary funds into the financial sector uniform distribution, so that the budget a "plate", the income a "cage", spending a "hole" to promote the optimal allocation of financial resources to promote the establishment modern financial system.
(B) the main principles.
Overall co-ordination. Through an integrated use of various types of funds, make an inventory of good use of surplus funds carried forward and accelerate budget execution issued, build the overall framework to promote co-ordination of financial resources to use.
Layered advance. In the project, subject, department, government budget system, the multi-year budget, all types of income, incremental and stock preparation and execution as the starting point, the orderly co-ordinate the use of fiscal funds.
Combination of distance. It is necessary to focus on the current implementation of the current budget to resolve outstanding problems Pianman financial capital stock of the high scale, to revitalize the use of the pooling arrangement; but also long-term perspective, and further intensify efforts to integrate various types of funds, improve the government's budget system.
Reform and Innovation. Both must learn to draw and extension of existing successful experiences and practices, by promoting fiscal reform and innovative approaches to co-ordinate the use of funds; but also by promoting the use of fiscal funds overall, governments and departments at all levels to promote the initiative as to promote decentralization, combined with the discharge pipe , transformation of government functions.
According to the law. It is necessary to strictly in accordance with the Budget Law and related laws and regulations, to promote co-ordinate the use of fiscal funds; and also give the necessary authorization to place first to try to push to amend the relevant budget management.
Second, the specific measures
(A) to promote co-ordinate the use of project funds.
Good project preparation. Ahead of the feasibility study, evaluation, bidding, government procurement and other preparatory work to ensure that the budget once approved or issued, the funds will be able to actually use.
Speed ??up the project budget approval and release. Budget approved by the people's congresses, to timely approval in accordance with the time, issued and disbursement of funds. Accelerate project release schedule and truly settled, in general, or the first half of the year included in the departmental budget earmarked, under liquidation. Strengthening the concept of the annual budget, the implementation of multi-year project, to be issued yearly budget based on funding requirements.
Establish the project dynamic adjustment mechanism. Real-time track the implementation of the project, progress in the implementation of the project budget is slow, according to a certain percentage of local financial recovery of funds to co-ordinate economic and social development for the areas in urgent need of financial support.
Strengthening project library management. Play project library foundation supporting role, did not enter the project for the library project generally not budgeted; standardized project settings, do careful and meticulous project library, fully reflect the project implementation units, budgetary arrangements over the years, carry-over balance of funds, performance evaluation results and so on; the implementation of the whole project management cycle rolling, and gradually improve the exit mechanism project.
(B) promoting urban use of focused funds accounts.
Focus on promoting the overall science and technology, education, agriculture, environmental protection, health care and other key subjects of funds, it is necessary to co-ordinate arrangements for the year budget, but also to speed up the digestion calendar year carryover balance of funds.
Accelerating technological capital optimization and integration. Create a public unified national technology management platform to accelerate the currently scattered in various departments to implement open competition of science and technology plan (projects, funds, etc.), optimize the integration of the National Natural Science Foundation, National Science and Technology major projects, key national research and development programs, technical innovative special guide (the Fund), the base and five categories of special talents.
Promoting education funds to optimize the integration. In accordance with the principle of powers and expenditure responsibilities to match and optimize the direction of government spending at all levels of education funding. New education funding primarily to remote and poor, minority areas, and gradually reduce regional, urban and rural, inter-school gap and promote fair education.
Promote energy conservation and environmental protection funds to optimize the integration. According to accelerate the construction of ecological civilization, the general requirements of the existing funds in accordance with the field of energy saving energy saving, environmental monitoring and surveillance, air pollution control, water pollution control, environmental remediation of soil management, ecological protection and restoration six co-ordinate integration.
Promoting agricultural funds to optimize the integration. Further promote the integration of agriculture-related funds at all levels of co-ordination, and gradually integrate agriculture-related funds for the development of agriculture, agricultural production, water conservancy development, forestry reform and development, rural and social development, poverty alleviation and development and other six categories, highlighting the innovative management of agriculture-related funds to use the mechanisms.
Promoting health funds to optimize the integration. Gradually integrated into the health sector funding health care, public health, medical services and other categories. The new rural cooperative medical care and urban residents medical insurance subsidies for the integration of urban and rural residents medical insurance subsidies, and unified management. As soon as possible to promote family planning services and the integration of public health services funding, and further optimize the expenditure structure, focusing on basic public health, prevention and control of major diseases, maternal and child health, family planning, food and drug safety and other fields.
Revising the major expenditures linked to relevant laws. Push to amend the relevant provisions of priority spending with revenue and expenditure growth or GDP-linked matters as soon as possible, according to the contents of the expenses related areas of reform and the need to protect the overall arrangement is really necessary, give priority to, first determine the total expenditure to take no further arrangements Measures specific projects.
(C) promote co-ordinate the use of sector funds.
Promoting the unified budget allocation rights. The central infrastructure investment, science and technology funds, cut the central management of the funds, should strengthen co-ordination with other financial resources, in accordance with the unified management processes for the preparation of the budget. The central infrastructure investment, science and technology center project funding arrangements expenditure, other financial funds can not arrange or reduction arrangements, arrangements to avoid duplication of spending and to invest in curing. For a small amount of central investment in infrastructure, the central science and technology funds and other financial resources are scheduled expenditure of the project, should develop a unified approach to capital management, unified capital allocation.
Co-ordination within the department to promote the use of funds. Clarify basic expenditures and project expenditures connotation boundaries, in addition to institutions outside their own expenses, the phasing of expenditure for expenditures within the department staffing funds. Strict control of each department's management of special funds the number of projects, adjust and optimize the functional classification of government expenditure on the basis of subjects, under item level subjects generally no longer split into various special funds.
Promoting inter-departmental co-ordinate the use of the funds. To clear up the integration of cross-sector funds, work on the same matter, should, according to the department responsible for clear division of responsibilities in principle, a single department, the corresponding funds included in its department budget; do need to be split by the department, according to the project and shall the nature of funds clear lead department, to develop a unified approach to capital management, and in accordance with regulations, departmental budgets were included in each department budget, reducing the lateral distribution of funds between departments.
Promoting responsibility sector adjustment and consolidation. Deepen institutional reform, rationalize the division of responsibilities between departments, government agencies optimize workflow and configuration functions, and strengthen government regulation, better play the role of government, create a fair competitive market environment.
(Iv) to promote co-ordination of the government budget system.
Increasing government budget transfers funds listed general public budget efforts. Improve the government budget system, the government fund budget government funds are not included in the directory list of items of income, except for certain items approved by the State Council, within three years of gradual adjustment switch columns general public budget, and overall use. From January 1, 2016, compensation for water and soil conservation, government housing fund, radio frequency occupation fee income railway realization of assets, electricity reform reserve fund liquidation of assets and income transfer listed five general public budget. After the above-mentioned fund transfer columns or expenditures are primarily used for special arrangements related expenses, and increase the income scale, the corresponding increase in the scale of expenditure on principle.
Increase the intensity of government funds transferred to the general budget of the public budget. Escrow fund budget management in government funds, and the general public to invest in a similar budget, overall budget should be transferred to the general public use, or to develop a unified approach to capital management, unified capital allocation. Government budget funds more than the size of carry-over funds 30% year income portion of the fund, should be added to co-ordinate the use of budget stabilization fund.
Promoting coordinated state capital budget and the general public budget. Transferred to the state capital budget to increase the intensity of the general public budget, in 2016 transferred to the proportion of 19%, and gradually increase the proportion of transferred. In addition to budget transferred to the general public, the state-owned capital operation budget expenditure limited scope for state-owned enterprises to solve historical problems and costs related reforms, respect capital injection and state-owned enterprises policy subsidies to state-owned enterprises. General public budget arrangements for funding in this area gradually withdraw.
Promoting the use of dedicated revenue overall. Phasing out of public budgets in general the predetermined fixed income support, the 2016 first cancel urban maintenance and construction tax and mineral resources compensation fees, prospecting and mining rights fees and the price, grassland vegetation restoration fee within three years, the waters of the use of gold and other special revenue funds dedicated, the corresponding changes in the law and regulations to promote, co-ordinate arrangements for security expenses related fields. The introduction of new tax revenues and non-tax revenue policies, generally not prescribed fixed income support, earmarking.
(E) promoting coordinated multi-year budget.
Establish multi-year budget balancing mechanism. General public budget surplus funds should be supplementary budget stabilization fund. The general public in the event of budget implementation surplus, surplus revenue is used to offset the deficit, to resolve the government debt or supplementary budget stabilization fund; if there is short close by or transferred to other budget stabilization fund budget funds, spending cuts and other ways to make up, If still difficult to balance, may be added to the provincial government deficit at the same level after the National People's Congress or its Standing Committee approved balance, city and county governments can apply for interim relief to the higher levels of government, and to be filled at the next annual budget.
Preparation of three-year rolling financial planning. For the next three years, a major revenue and expenditure analysis and forecasting, some major reforms during the planning period, important policies and major projects, research policy objectives, operation mechanism and evaluation methods. Three-year rolling financial planning and economic and social development for a five-year Plan and the related special planning, regional planning convergence, strengthening the rolling three-year financial plan for the annual budget constraints.
Accelerate key areas of three-year rolling financial planning. In water conservancy investment operations, compulsory education, health, social security and employment, environmental protection and other key areas to carry out three-year rolling financial planning pilot. The inclusion of project funds three-year rolling financial planning for special reasons can not be used, all departments should timely adjust for other projects within the plan and report to the finance department for the record.
Preparation of three-year rolling financial planning department. Strengthen the total departmental budget constraints when preparing the 2016 departmental budgets, simultaneous preparation of central departments 2016--2018 year rolling financial planning.
Development Five-Year Plan for national economic and social and related special planning, regional planning, the focus of the general provisions shall spend the same or increase in fiscal revenue and expenditure items linked to GDP. Departments, industry planning involves fiscal policy and financial support to the three-year rolling financial planning convergence.
(Vi) to promote and co-ordinate the use of standardized categories of income.
Greater efforts to co-ordinate the use of all types of income, further rationalize the relationship between taxes, cleaning, integration and standardization of government funds and special revenue, and gradually establish a tax revenue-driven, non-tax revenue into a suitable complement system.
Cleanup compression government funds and special revenue. Combined with investment and financing system reform and transformation of government functions, cancellation policy effect is not obvious, not suited to government funds and special items income market economy development. Same merge levied, levied similar manner and use of resources, duplication of government funds and special revenue items. Combined with tax reform, according to the law of a tax nature and special government funds to income tax. The decision to cancel, merge, adjust government funds in a timely manner to promote the revision of relevant laws and regulations.
Implementation of directory listing management. Management of the implementation of the directory listing government funds and special income regularly to the public the name of the project, based on the establishment, collection methods and standards, income scale, increase policy transparency, accept social supervision.
The establishment of strict control of income items. Usually no new government funds and special revenue items, adjusted if necessary to raise income or economic activities, mainly through tax law means. The individual needs of the newly established government funds and special items of income, should have clear laws, administrative regulations or approved by the State Council in accordance with, and clearly imposed deadline.
(Vii) to promote co-ordinate the use of financial stock funds.
Implement the State Council to revitalize the requirements on financial stock funds, comprehensive inventory of surplus carry-over funds, budget stabilization fund, budget, working capital and other types of stock funds.
Promote co-ordinate the use of surplus funds carried forward. Of surplus funds carried forward and unused funds for two consecutive years, will be used in a planned recovery. Carry-over funds for less than two years, to speed up the implementation of the budget, in accordance with the provisions for other areas of urgent need, without the original purpose of use, it should be required to co-ordinate economic and social development for the areas in urgent need of financial support. Strictly control the general public budget carry-over projects, the project may not be carried over no longer carried forward. Local governments at all levels except treasury centralized payment balance, but are not allowed to be disbursed on an accrual basis, accrual accounting has been the stock of capital by responsibilities, in conjunction with the current financial and economic situation within two years after use.
Budget stabilization fund to promote the use of co-ordination. According to the actual needs of the budget will be left unused working capital transferred to the budget stabilization fund. Reasonable control of the budget stabilization fund size, the size of budget stabilization fund transferred to the use in the preparation of the annual budget after the year is generally not more than 5% of the total expenditure of the general level of public budgets (including transfer payments to lower-level) of.
Establish sound financial and budgetary arrangements for stock funds overall binding mechanism. From 2016 onwards, for the fiscal year-end stock funds large-scale regional or sector, downsizing under appropriate budget arrangements. Among them, the fiscal year-end stock funds large-scale area, a certain proportion of their respective subtract the pay scale under transfer; for the fiscal year-end stock funds large-scale sector, a certain proportion of the corresponding public funds under its subtract or scale project expenditure.
(Viii) promoting integrated and coordinated budgeting and budget execution.
Coordinated budgeting and budget implementation, it is necessary to strengthen the preparation of budget management, increase scientific and accurate budgeting, and lay the foundation for the implementation of the budget, but also to strengthen budget execution management, speed up the progress of the implementation of the budget, provide important as budgeting reference.
Strict control on behalf of knitting matters, in accordance with the provisions of the Budget Law and the State Council, detailed budgeting, to improve the rate of early budget in place. Governments at all levels should strictly control the generation of budgeting, budgeting generations who need to matters that should be approved by the government at the same level and the Times, and released the year before June 30; overdue issued to recover the same level of co-ordination to use the general budget. Improve the integrity of the local budget, transfers from the central place will be issued in advance of the expected number of local, regional level should be incorporated in the budget in full and timely implementation of the organization. Strict budgetary adjustment, hardening budget constraints, the implementation of the annual budget in addition to disaster relief and other emergency expenses by moving support solutions such contingencies, generally do not increase when the introduction of spending policy, the policy must be introduced, should adopt the annual budget after funding arrangements. Accelerate the implementation of budget policy has been set for the organs and institutions pension system reform and improve the wage system, we have been given the introduction of policies to seize the embodiment, the timely release budget.
(Ix) promoting integrated use of debt funds.
Co-ordinate efforts to increase the use of the stock of debt capital and additional debt capital. Combined with the stock of debt of local government to clean up the screening process, the stock of debt of local government funds are not used, it should be included in the budget management, and new debt pooling arrangement. Among them, the general public debt funds into the general budget, the local financial departments at all levels to co-ordinate unproductive public welfare projects; special funds into the debt corresponding government funds, and co-ordination of the government funds have a certain income for the corresponding public welfare projects. Explore local government debt issued in advance of new quotas, to improve the integrity of budgeting, while speeding up the release schedule.
Strengthen co-ordination and management of the library funds of debt issued. Speed ??up the replacement of local government bond issuance schedule. Higher library section area can be appropriately control the scale and pace of debt issued under subsection balances libraries, promote library funds management and debt issuance combination.
(J) to promote co-ordination of the use of transfer payments.
Optimize the transfer payment structure. Of the central powers as much as possible by the central government spending arrangements, the central direct implementation and strengthen project selection and execution control; belonging to local powers, the responsibility borne by local expenditures, mainly through the central general transfer payments support for a small amount of bootstrap class, relief type, transaction type emergency special transfer payments to support and fund specific distribution rights, the right to determine the project where the central focus on strengthening supervision.
Cleanup integrate special transfer payments. Close to the target, similar to the direction of capital investment, fund management approach similar special transfer payments to be integrated. After the integration of the special transfer payments, should be itemized to develop a unified approach to capital management, so that a clear policy objectives, the main distribution uniform and consistent allocation, the only approval process, capital investment coordination. Strengthening transfer payments and departmental budget co-ordination, reduce execution level of the budget adjustment.
Explore new ways to allocate special transfer payments. Competitive fields of special funds reserved for a certain externalities, gradually change the administrative distribution, mainly to take fund management market-oriented mode of operation, and to encourage the combination of financial capital, social capital plays leveraging leverage.
Promoting local pilot. By give the necessary authorization to place or modify budget management approach, allowing local governments in promoting the use of fiscal funds overall pilot. Higher levels of government for special transfer payments issued, lower levels of government can be made without changing the underlying purpose of the funds on class-level subjects, play close to the grassroots advantage, with related special arrangements of the present level, increased integration efforts will be supported in the same direction, support special transfer payments related art integrated use.
Third, organizational guarantee
(A) establish a co-ordination mechanism. All localities and departments should attach great importance to strengthen the organization and leadership, earnestly implement the work. State Council departments to play a leading role as a positive, active cooperation. Treasury should pay close attention to the progress of the relevant work, strengthen supervision and guidance. Audit auditing organs at all levels should strengthen supervision and promote the implementation of the measures in place.
(B) establish mechanisms for statistical information on a regular basis. All localities and departments should establish a system of statistical information on a regular basis, a careful analysis of financial integration, budget implementation, financial stock funds and other relevant information, and timely submitted to the Ministry of Finance.
(C) establish and improve accountability mechanisms. Establish and improve the assessment indicators, according to the specified completion, will be held accountable relevant departments and personnel. From the establishment of the project application to the whole process of financial funds allocated powers and responsibilities inventory system, effectively clear responsibilities. For false impersonator, taking defraud, misappropriated financial resources to implement a case of double problem investigation, severely punished not only the immediate parties, but also to trace retroactive liability reporting, approval and other aspects of the relevant departments and personnel.
(Iv) the establishment of information disclosure mechanism. In addition to the statutory classified information, the central and local budgets and final accounts should be disclosed in all sectors, fully accept social supervision.