关于2015年中央和地方预算执行情况与2016年中央和地方预算草案的报告

Report on the Execution of the Central and Local Budgets for 2015 and on the Central and Local Draft Budgets for 2016 

——2016年3月5日在第十二届全国人民代表大会第四次会议上

At the Fourth Session of the Twelfth National People's Congress on March 5, 2016

财政部

Ministry of Finance

Rule of law has been strengthened throughout fiscal and tax work.

We made efforts to ensure that governments at all levels, departments, and organizations improved their rule of law awareness as they put into effect all of the requirements laid down in the Budget Law. We strengthened the development of the Budget Law's complementary institutions, soliciting comments from the general public on the draft revisions to the Implementation Regulations of the Budget Law, launching management regulations for special transfer payments from the central government to local governments, and revising management regulations for general transfer payments and other rules and regulations. We collaborated with the relevant NPC department on further clarifying the principle of law-based taxation in the Legislation Law, and drew up guidelines for implementing this principle. We also actively assisted legislative work, such as the preparations for enacting an environmental protection tax.

Budgetary work has been made more authoritative and consequential in all aspects.

We have tightened budgetary constraints and made sure that all expenditures are based on budgets. We further increased the detail of budget itemization, scaled down the amount of tentative budgets prepared by the Ministry of Finance for other governments offices or programs, and examined and approved departmental budgets in a timely fashion. We accelerated the work to break down and disseminate budgetary expenditure targets and intensified inspections of programs implemented by central government departments, therein achieving noticeably faster budget execution. We improved the regulatory system for budgets and made budget assessment an essential part of the budgetary management procedures. We introduced regulations such as the provisional regulations for performance target management of special transfer payments from the central government to local governments. The number and yuan value of central government department programs that received performance evaluations rose by 26.3% and 27% respectively, and the evaluation results were linked to the allocation of this year's budgets. We expanded the number of government departments whose budgets and final accounts are subject to NPC review, and for the first time, publicly released budgets for special transfer payments broken down by region and by program. We also carried out inspections on the disclosure of local governments' budgets and final accounts with a view to enhancing their fiscal transparency.

Proactive fiscal policy has been made more targeted and effective.

In responding to economic developments, we exercised targeted and well-timed regulation on the basis of range-based regulation and strengthened anticipatory adjustments and fine-tuning, ensuring that the Chinese economy operated within an appropriate range.

First, we maintained a necessary level of spending intensity. We increased the government deficit by an appropriate amount in the 2015 budget, and put to use funds carried over from previous years to increase the intensity of spending. We took a host of measures, such as thoroughly reviewing carryover and surplus funds and strengthening inspections and accountability, to put existing government funds to use for the purposes of ensuring the wellbeing of the people, strengthening points of weakness, and making development more sustainable. A total of 3.2 trillion yuan worth of bonds were issued to replace outstanding debt of local governments close to maturity, helping reduce their interest burden and debt repayment pressure and free up financial resources for the development of key programs.

Second, we stepped up efforts to reduce taxes and fees. We expanded the scope of certain preferential policies, such as those concerning corporate income tax for low-profit small businesses and the accelerated depreciation of fixed assets. We exempted small and micro businesses from 42 different kinds of administrative charges and canceled or suspended the collection of 57 kinds of central-level administrative charges. We lowered premiums for unemployment, workplace injury, and maternity insurance schemes, and expanded the scope of the policy of providing subsidies from the unemployment insurance fund to enterprises that maintain stable employment during structural adjustments.

Third, we strengthened the guiding role played by fiscal funds and fiscal policies. We made great efforts to promote the use of the public-private partnership (PPP) model, and we encouraged nongovernmental capital to enter public service sectors by providing investment and operation subsidies or through franchising or other methods. We moved ahead with pilot reforms of management over the use, disposition, and profit rights of scientific and technological advances made in central-level public institutions. We improved the policy of additional tax deductions for enterprise research and development. We selected the first group of demonstration cities to act as business start-up and innovation hubs for small and micro businesses.

Reforms of the fiscal and tax systems have been deepened.

We introduced a number of new reform measures in an orderly manner and improved mechanisms related to their implementation, ensuring that these reform measures took firm root.

First, we accelerated the reform of the budgetary management system. We transferred local educational surcharge and ten other items from the budgets of government-managed funds into general public budgets. We drew up management regulations for the budgets of central state capital operations, transferred more funds from such budgets into general public budgets, and established a mechanism for making transfer payments from the budgets of central government state capital operations to the budgets of local government state capital operations. We moved forward with medium-term financial planning. We made further progress in organizing and integrating special transfer payments, cutting the number of items from 150 in 2014 to 96 in 2015. We established a standardized mechanism for local governments to secure financing through bond-issuance, placed local government debt under budgetary management by category, and imposed ceilings for such debt. All local government bonds are now issued and repaid by their respective provincial governments. We enacted regulations and operational guidelines for the preparation of government financial reports, published basic principles on government accounting, and revised the general fiscal budget accounting system.

Second, we deepened tax reforms. We carried out research on a plan for implementing trials of replacing business tax with value added tax (VAT) in all sectors and a reform plan for taxing personal income on the basis of both adjusted gross income and specific types of income. We further expanded the coverage of ad valorem taxation, extending it to the reform of resource taxes on rare earths, tungsten, and molybdenum. We carried out research relating to the excise tax reform plan and improved excise tax policies. We intensified efforts to review and standardize fees and charges levied on businesses.

Third, we made steady progress in the reform of the fiscal system. We improved the mechanism for sharing the cost of export tax rebates between the central and local governments. We studied and moved ahead reform of the division of administrative authority and spending responsibilities between the central and local governments. As the tax reform progressed, we worked promptly to draw up a transitional plan for adjusting the division of revenue between the central and local governments.

Financial discipline has been tightened up.

We have been conscientiously putting into practice the CPC Central Committee's eight-point decision on improving Party and government conduct and the State Council's three-point decision on curbing government spending, rigorously controlling general expenditures, and have achieved a reduction of 11.7% in the central government's budgetary expenditures related to official overseas visits, official vehicles, and official hospitality as compared to 2014. We improved regulations on practicing thrift and opposing waste, strengthened the management of meeting venue selection, and made adjustments to standards for business travel and accommodation expenses of Party and government organization workers. We improved standards for basic expenditure quotas, moved faster to develop a system of standards for program expenditure quotas, and improved budgetary management of program expenditures. We launched a campaign to rectify the abuse of funds earmarked for agriculture, farmers, and rural areas, investigated relevant problems and punished those responsible, released representative cases of financial discipline violations, and further ensured that the management of funds is in line with standards and relevant loopholes are closed. We stepped up financial oversight and implementation supervision to ensure that our fiscal and tax policies were productive in promoting steady growth.

Figure 1

Revenue and Expenditures in the General Public Budget of the Central Government in 2015

Promoting education reform and development

We supported implementation of the second phase of the three-year action plan for preschool education. We put in place mechanisms for guaranteeing compulsory education funding in rural areas as well as the policy of waiving tuition and miscellaneous fees for students receiving compulsory education in urban areas, benefiting approximately 110 million students in rural areas and 29.44 million students in urban areas. We implemented the quality improvement plan for modern vocational education and worked to reshape the vocational education system. We reformed the budgetary appropriation system for institutions of higher learning directly under the central government to guide them in improving their models of development. We worked to guarantee the educational rights and interests of special needs groups through our support for the development of special needs education. We improved government financial aid policies for students, such as study assistance loans and student grants, providing aid to approximately 7.75 million college students, 5.14 million regular high school students, and 2.65 million secondary vocational school students, as well as exempting 10.45 million secondary vocational school students from paying tuition.

Pursuing innovation-driven development

We deepened reform of the management of science and technology initiatives financed by the central government. By completing the optimization or integration of a majority of these initiatives, we were able to concentrate resources on major programs that embody national strategic intentions. We redoubled efforts to support science and technology activities for the public interest, particularly those involving basic research. We supported the implementation of major science and technology projects. We worked to ensure research institutions had the support they needed as they conducted research into their own choice of subjects, and improved the conditions for undertaking research. We launched trials of the insurance compensation mechanism for newly-developed major technological equipment.

Helping provide better social security and employment services

Basic pension benefits for enterprise retirees were increased to an average of 2,270 yuan per person per month. The minimum social pension benefits for participants of the basic old-age insurance for rural and non-working urban residents were raised from 55 yuan to 70 yuan per person per month. We moved forward with reform of the pension system for employees of Party and government offices and public institutions, establishing an annuity scheme for these employees while at the same time adjusting their basic salaries. We intensified efforts to implement the employment assistance initiative for university graduates as well as the scheme for guiding university students in starting their own business, and we also worked to strengthen the capacity of the government for providing public employment services. We gave stronger support to assistance efforts for subsistence allowance recipients, orphans, people with disabilities, and other disadvantaged groups. We further increased subsidies and living allowances to entitled groups, and worked to ensure the proper delivery of pension and other benefits to retired military personnel who now receive their benefits from the government.

Deepening reform of the healthcare system

Government subsidies towards the new rural cooperative medical scheme and the basic medical insurance for non-working urban residents were increased to 380 yuan per person per year with a corresponding rise in the rates for individual contributions to 120 yuan per person per year. We raised per capita government spending on basic public health services from 35 yuan to 40 yuan per year, with the entirety of the additional funds in rural areas being used to purchase basic public health services from doctors. We carried out comprehensive reform of county-level public hospitals in all counties and county-level cities and expanded trials of the comprehensive reform of urban public hospitals to 100 cities. We continued to support community-level healthcare facilities as well as village clinics in implementing the system of essential medicines. We promoted standardized training programs for resident physicians. We also improved medical assistance programs and the system for providing assistance for emergency medical treatment in both urban and rural areas.

Promoting sustainable development of agriculture

We expanded trials for restoring and improving cultivated land contaminated by heavy metals and for comprehensively dealing with the over-abstraction of groundwater. We conducted in selected areas trial reforms of direct subsidies to grain growers, subsidies for purchasing superior crop varieties, and general subsidies for purchasing agricultural supplies with the aim of protecting the soil fertility of cultivated land and supporting appropriately scaled-up grain operations. We promoted the development of water conservation and supply projects, large-scale, high-efficiency, water-saving regional irrigation projects, and high-grade farmland. We made further increases to the amount of funding available for poverty alleviation efforts, facilitating the launch of a number of poverty reduction projects that produced outstanding results. We helped strengthen grassland ecological conservation and supported the implementation of a new round of efforts to return 667,000 hectares of marginal cropland back into forest or grassland as well as the expansion of efforts to bring a complete end to the commercial logging of natural forests. We launched key national water and soil conservation projects, bringing soil erosion under control across 6,570 square kilometers of land. We made coordinated progress in the trials related to comprehensive rural reform. We supported the work to determine and open up registration for contracted rural land-use rights.

Conserving energy, reducing emissions, and improving the environment

With a focus on key areas, we increased funding to deliver further results in the prevention and control of air pollution. We moved forward with trials to construct networks of underground utility corridors and build sponge cities, as well as with efforts to prevent and treat heavy metal pollution in 38 key areas. We launched trials to comprehensively improve the conditions around rivers on the geographical scale of each drainage basin. We moved ahead with key forest shelterbelts and other ecological conservation projects. We supported comprehensive environmental improvement efforts in nearly 20,000 villages and channeled greater effort into supporting the operations and management of rural environmental protection infrastructure. We worked to facilitate the development of new energy and renewable energy industries. With our establishment of a well-rounded system of supportive policies, the production and sales of new-energy vehicles last year rose by approximately 400% and 300% respectively. We carried out comprehensive demonstrations of achieving energy conservation and emissions reductions through fiscal policy.

Improving government housing support

We provided housing support through the provision of both physical housing and rent subsidies, and carried out trials of developing and operating public rental housing through PPP models. We supported the renovation of 6.01 million homes in run-down urban areas and 4.32 million dilapidated rural houses.

Giving impetus to cultural prosperity and development

We promoted implementation of national standards for the provision of basic public cultural services, accelerated the development of a modern system of public cultural services, and supported the construction of multipurpose centers for providing cultural services in communities. We worked to strengthen the protection of cultural heritage sites and traditional Chinese villages. We promoted the development of leading cultural enterprises and creative and cultural industries. We worked to strengthen the international communication capacity of key news media outlets and enhance the country's soft power.

Over the course of 2015, despite mounting downward pressure on the economy, subdued government revenue growth, and increased difficulty in maintaining a balanced government budget, our fiscal operations remained basically stable and we were able to effectively implement all fiscal and tax policies, providing strong support for accomplishing the major targets for economic and social development of the year as well as realizing a successful conclusion to the 12th Five-Year Plan.

Looking back over the last five years, it is clear that the reform and development of public finance work in China has reached a new level, and that its role as the foundation of the country's governance has been effectively utilized. We constantly deepened the reform of the budgetary management system, made systematic headway in replacing business tax with VAT and in reforming excise tax and resource tax systems, and achieved major progress in building a modern fiscal system over five years of continuous refinement. In exercising macro regulation through fiscal policy, we paid great attention to keeping market expectations stable, unleashing internal forces for driving economic growth, and promoting structural improvements, and helped achieve a better-quality, higher-efficiency, and steadily operating economy by relying more heavily on market forces and adopting more reform measures. The wellbeing of our people has seen continual improvements, and we increased spending in related areas while working hard to improve related expenditure policies and institutional arrangements, emphasizing their public nature as well as increasing their sustainability. We established a general institutional framework for the management of local government debt, developed a clear picture of total outstanding debt, and carried out the systematic replacement of a portion of outstanding debt to ensure better overall control of debt-related risks.

We owe these achievements to the sound policymaking and firm leadership of the CPC Central Committee and the State Council; to the oversight, guidance, and strong support of the NPC, the CPPCC National Committee, and all of their members; and to the joint efforts and hard work of all regions, government departments, and all our people.