Document catalogue of Guofa No.2015

People's governments of all provinces, autonomous regions and municipalities directly under the Central Government, ministries and commissions and institutions directly under the State Council:

In order to promote the strategic adjustment of economic structure, strengthen the construction of weak links and promote sustained and healthy economic development, it is urgent to further innovate investment and financing mechanisms in key areas such as public services, resources and environment, ecological construction and infrastructure, and give full play to the positive role of social capital, especially private capital. To this end, the following opinions are put forward.

I. General requirements

(1) guiding ideology. We will fully implement the spirit of the 18th National Congress of the Communist Party of China and the Third and Fourth Plenary Sessions of the 18th Central Committee, make the market play a decisive role in resource allocation and give full play to the role of the government in accordance with the decision-making arrangements of the CPC Central Committee and the State Council, break the monopoly of the industry and market barriers, effectively lower the entry threshold, establish fair, open and transparent market rules, create an investment environment with equal rights, equal opportunities and equal rules, further encourage social investment, especially private investment, revitalize the stock, make good use of the increment, adjust the structure and fill the shortcomings.

(2) Basic principles. Implement unified market access and create equal investment opportunities; Innovate investment operation mechanism and expand social capital investment channels; Optimize the direction and mode of government investment and play a leading role; Innovate financing methods and broaden financing channels; Improve the price formation mechanism and play the role of price leverage.

Second, innovate the operating mechanism of ecological environment investment.

(3) Deepen the reform of forestry management system. We will promote the reform of the management system of state-owned forest areas and state-owned forest farms, improve the forest management and logging management systems, and implement scientific forest management. Deepen the reform of the collective forest right system, stabilize the forest right in contract relationship, liberalize the forest land management right, and encourage the standardization of forest right circulation according to law. Encourage afforestation in barren hills and wasteland and transfer of forest rights according to law. Reduce taxes and fees for forest right transfer and effectively reduce the transfer cost.

(4) Promote the diversification of ecological construction subjects. Under the premise of strict protection of forest resources, encourage social capital to actively participate in ecological construction and protection, and support qualified new business entities such as farmers' cooperatives, family farms (forest farms), large professional households and forestry enterprises to invest in ecological construction projects. Those who use social capital to plant trees in barren hills and wasteland are allowed to develop ecological industries such as under-forest economy and forest tourism on the premise of ensuring ecological benefits and meeting the requirements of land use control.

(5) Promote the marketization of environmental pollution control. In terms of pollution control in key industries such as electric power and steel, as well as development zones (industrial parks), we will vigorously promote the third-party control of environmental pollution, and pay pollution control and emission reduction service fees to professional environmental service companies by entrusting treatment services and hosting operation services, so as to improve the industrialization and specialization level of pollution control. We will steadily push the government to purchase environmental monitoring services from the society. Establish a recommendation system for third-party pollution control enterprises in key industries.

(six) actively carry out pilot trading of emission rights and carbon emission rights. We will promote the pilot project of paid use and trading of emission rights, establish a system of paid use of emission rights, standardize the emission trading market, and encourage social capital to participate in pollution reduction and emission trading. Accelerate the adjustment of the collection standards of sewage charges for major pollutants and implement differentiated sewage charges policies. Accelerate the pilot of China's carbon emission trading system, explore forest carbon sink trading, develop carbon emission trading market, encourage and support social investors to participate in carbon quota trading, find price functions through financial markets, adjust the interests of different economic entities, and effectively promote environmental protection and energy conservation and emission reduction.

Three. Encourage social capital to invest in agriculture and water conservancy projects.

(7) Cultivate diversified investors in agriculture and water conservancy projects. Support farmers' cooperatives, family farms, large professional households, agricultural enterprises and other new business entities to invest in the construction of farmland water conservancy and soil and water conservation facilities. Small farmland water conservancy and soil and water conservation project assets formed by financial subsidies are allowed to be held and managed by agricultural water cooperation organizations. Encourage social capital to participate in the construction and operation of major water conservancy projects for water saving and water supply in various forms such as franchising and shareholding, and obtain certain benefits. Social capital should be actively encouraged to invest in major water conservancy projects that social capital is willing to invest in.

(eight) to ensure a reasonable return on investment in agriculture and water conservancy projects. Social capital invests in the construction or operation of farmland water conservancy, soil and water conservation facilities and major water conservancy projects that save water and supply water, and enjoys the same policy treatment as state-owned and collective investment projects, and can obtain operating income such as water supply and water charges according to law; To undertake public welfare tasks, the government can give appropriate subsidies to project construction investment and maintenance management funds, and implement preferential policies. Social capital can invest in the construction, operation and management of farmland water conservancy facilities and major water conservancy projects, and can inherit, transfer, sublet and mortgage their related rights and interests according to law; Expropriation, requisition or occupation shall be compensated or compensated in accordance with the relevant provisions of the state.

(9) Through the reform of water rights system, attract social capital to participate in the development, utilization and protection of water resources. Accelerate the establishment of water rights system, cultivate and standardize the water rights trading market, actively explore various forms of water rights trading circulation, and allow all localities to meet the new rational water demand through water rights trading. Encourage social capital to give priority to the right to use new water resources by participating in the investment and construction of major water conservancy projects for water saving and water supply.

(ten) improve the water price formation mechanism of water conservancy projects. In-depth pilot reform of agricultural water price will be carried out to further promote agricultural water saving. The non-agricultural water supply price of water conservancy projects shall be reasonably set according to the principles of compensation cost, reasonable income, high quality and good price, and fair burden, and adjusted in time according to the changes of water supply cost and social affordability, and the water price of two-part water conservancy projects and high and low season water prices shall be implemented. When the price adjustment is not in place, the local government can arrange financial funds according to the actual situation and make reasonable compensation to the operating units.

Fourth, promote the marketization of municipal infrastructure investment and operation.

(eleven) the reform of municipal infrastructure construction and operation mode. Promote the transformation of municipal infrastructure construction and operation institutions to independent accounting and independent management. Encourage to break the decentralized business model with the project as the unit, implement large-scale operation, reduce construction and operation costs, and improve investment efficiency. Promote the investment and operation of sewage collection and treatment and garbage disposal projects in cities, counties, towns and villages by industry, and encourage the integration of urban and rural water supply and the investment and operation of factory networks.

(twelve) actively promote social capital to participate in the construction and operation of municipal infrastructure. Encourage social capital to invest in municipal infrastructure projects such as urban water supply, heating, gas, sewage and garbage treatment, resource utilization and treatment of construction waste, urban common ditches, parks, public transportation and supporting services for parking facilities through franchising, investment subsidies and government purchase of services. The government chooses qualified operators according to law. The government can transfer the completed municipal infrastructure projects to the operation and management of social capital through entrustment or transfer-operation-transfer (TOT).

(thirteen) to strengthen the county infrastructure construction. In accordance with the requirements of new urbanization development, we will develop qualified county towns and key towns into small and medium-sized cities, support infrastructure construction, and enhance the ability to absorb agricultural transfer population. Select a number of county towns and key towns with industrial base, characteristic resources and location advantages to carry out pilot projects, and increase policy support for introducing market mechanism into municipal infrastructure construction and operation.

(fourteen) improve the municipal infrastructure price mechanism. Accelerate the improvement of the formation, adjustment and compensation mechanism of municipal infrastructure prices, so that operators can obtain reasonable income. The implementation of the upstream and downstream price adjustment linkage mechanism, when the price adjustment is not in place, the local government can arrange financial funds to make reasonable compensation for the business operation according to the actual situation.

Five, reform and improve the transportation investment and financing mechanism

(fifteen) accelerate the reform of railway investment and financing system. Make good use of the railway development fund platform, attract social capital to participate and expand the fund scale. Make full use of the comprehensive development policy of railway land to support railway development with development income. In accordance with the direction of marketization, we will constantly improve the formation mechanism of railway freight rates. Release the ownership and management rights of intercity railways, municipal (suburban) railways, resource development railways and feeder railways to local governments and social capital. In accordance with the requirements of building a modern enterprise system, protect the rights and interests of investors, and promote the implementation of demonstration projects to introduce private capital, such as the railways from West Mongolia to Central China and Changchun to Xibayanhua. Encourage the comprehensive development of the roof land around urban rail transit stations and depots in accordance with the principles of "multi-mode connection, three-dimensional development, functional integration and economy and intensification" to attract social capital to participate in urban rail transit construction.

(sixteen) improve the highway investment and financing model. Establish and improve the government-led, graded responsibility and diversified financing highway investment and financing model, improve the toll road policy, attract social capital investment, and raise funds for construction and maintenance through multiple channels. Gradually establish a coordinated development mechanism between expressways and ordinary highways to promote the sustained and healthy development of ordinary highways.

(seventeen) to encourage social capital to participate in the construction of water transport and civil aviation infrastructure. Explore the development of investment and financing modes such as "combination of navigation and electricity", give investment subsidies according to relevant policies, and encourage social capital to invest in the construction of navigation and electricity hubs. Encourage social capital to invest in the construction of ports and inland navigation facilities. Actively attract social capital to participate in the investment and construction of hub airports, trunk airports and airport supporting service facilities with good profitability, and broaden the sources of airport construction funds.

Six, encourage social capital to strengthen investment in energy facilities.

(eighteen) to encourage social capital to participate in power construction. On the premise of doing a good job in ecological environment protection, resettlement and ensuring project safety, social capital is encouraged to invest in conventional hydropower stations and pumped storage power stations through owners' bidding. On the premise of ensuring that the subject with nuclear power holding qualification bears the responsibility for nuclear safety, social capital will be introduced to participate in nuclear power project investment, and private capital will be encouraged to enter the field of nuclear power equipment development and nuclear power services. Encourage social capital to invest in the construction of clean energy projects such as wind, light, biomass and back-pressure cogeneration units, and enter the fields of clean and efficient coal-fired power project construction, energy saving and emission reduction upgrading of coal-fired power plants.

(nineteen) to encourage social capital to participate in power grid construction. Actively attract social capital to invest in the construction of trans-regional transmission channels, regional trunk power grid improvement projects and distribution network projects in large and medium-sized cities. Social capital was introduced in the pilot project, such as the second circuit of Hainan power grid and the UHV DC transmission project from northwest Yunnan to Guangdong. Encourage social capital to invest in the construction of distributed power grid-connected projects, energy storage devices and charging and replacing facilities for electric vehicles.

(twenty) to encourage social capital to participate in the construction and operation of oil and gas pipeline network, storage facilities and coal storage and transportation. Support private enterprises and local state-owned enterprises to participate in the construction of oil and gas pipeline trunk lines, coastal liquefied natural gas (LNG) receiving stations, underground gas storage, urban gas distribution pipelines and urban gas storage facilities, and control the construction of oil and gas pipeline branch lines and commercial reserves of crude oil and refined oil. Encourage social capital to participate in the construction of railway coal transportation trunk lines and coal storage and distribution systems. The petrochemical integration project of petrochemical base determined by national planning is open to social capital.

(twenty-one) straighten out the energy price mechanism. Further promote the reform of natural gas prices, realize the merger of stock gas and incremental gas prices in 20 15 years, gradually liberalize the price of natural gas sources for non-residents, and implement the market-oriented policy of unconventional natural gas prices such as shale gas and coalbed methane. Introduce the price policy of natural gas pipeline transportation as soon as possible. According to the principle of reasonable cost plus reasonable profit, the benchmark electricity price of coalbed methane power generation and residual heat and pressure power generation will be adjusted in time. Promote the marketization of distributed natural gas energy cold, heat and electricity prices. Improve the price policy of renewable energy power generation, study and establish a cascade interest compensation mechanism in the basin, and adjust and improve the environmental protection electricity price policy of coal-fired generating units in a timely manner.

Seven, promote the diversification of information and civil space infrastructure investment.

(twenty-two) to encourage the telecommunications industry to further open to private capital. Further improve laws and regulations and revise the classified catalogue of telecommunications services as soon as possible. Study and introduce specific pilot measures, encourage and guide private capital to invest in broadband access network construction and business operation, and vigorously develop broadband users. Promote private enterprises to carry out pilot work of mobile communication resale business and promote business innovation and development.

(twenty-three) to attract private capital to increase investment in information infrastructure. Support basic telecommunications enterprises to introduce private strategic investors. Promote China Tower Co., Ltd. to introduce private capital and realize the development of mixed ownership.

(twenty-four) to encourage private capital to participate in the construction of national civil space infrastructure. Improve the data policy of civil remote sensing satellites, strengthen the government's purchase of services, encourage private capital to develop, launch and operate commercial remote sensing satellites, and provide market-oriented and professional services. Guide private capital to participate in the construction of satellite navigation ground application system.

Eight, encourage social capital to increase investment in social undertakings.

(twenty-five) to speed up the classification reform of social institutions. Actively promote the reform of qualified institutions in the fields of pension, culture, tourism and sports and qualified medical institutions in areas rich in public hospitals, create conditions for social capital to enter, and encourage social capital to participate in the reform of institutions. Transform qualified training and recuperation institutions of state-owned units into pension institutions.

(twenty-six) to encourage social capital to increase investment in social undertakings. By means of sole proprietorship, joint venture, cooperation, joint venture, leasing, etc., social capital is encouraged to participate in the construction of education, medical care, old-age care, physical fitness and cultural facilities by means of franchising, public construction and private operation, and private office assistance. Opinions on encouraging social forces to set up education and promoting the healthy development of private education should be issued as soon as possible. All localities should make overall planning and scientific layout of all kinds of public service facilities when preparing the overall urban planning, regulatory detailed planning and related special planning. Governments at all levels gradually expand the scope of services purchased by governments such as education, medical care, old-age care, physical fitness and culture, and all kinds of business entities participate equally. All kinds of qualified medical institutions will be included in the designated scope of medical insurance.

(twenty-seven) to improve the implementation of social undertakings construction and operation of preferential tax policies. We will further improve and implement preferential tax policies for non-profit education, medical care, pension, fitness and cultural institutions. The construction of non-profit medical care and old-age care institutions shall be exempted from relevant administrative fees, and the construction of for-profit medical care and old-age care institutions shall be halved.

(twenty-eight) to improve the price management policy of social undertakings. Private education and medical institutions use electricity, water, gas and heat, and implement the same price policy as public education and medical institutions. The electricity, water, gas and heat used by the old-age care institutions shall be implemented according to the living price of residents. In addition to the basic services provided by public medical and pension institutions in accordance with the government's price policy, other medical and pension services are subject to independent pricing by operators. For-profit private schools set their own prices, and the charging policy for non-profit private schools is determined by the local government according to the market direction and local actual conditions.

Nine, establish and improve the government and social capital cooperation (PPP) mechanism.

(twenty-nine) to promote the government and social capital cooperation (PPP) model. Seriously sum up experience, strengthen policy guidance, actively promote PPP model in public services, resources and environment, ecological protection, infrastructure and other fields, standardize the selection of project partners, introduce social capital, and enhance the supply capacity of public goods. Relevant government departments should strictly follow the relevant laws and regulations on budget management, improve the financial subsidy system, and effectively control and prevent financial risks. Improve the legal system of PPP mode to ensure the smooth operation of the project. Encourage the revitalization of existing resources through PPP, and the realized funds should be used for the construction of key areas.

(30) Standardize cooperative relations and safeguard the interests of all parties. Relevant government departments should formulate management measures, issue standard contract model as soon as possible, make detailed provisions on the owner selection, price management, return mode, service standard, information disclosure, penalty for breach of contract, government takeover and evaluation and demonstration of PPP projects, and standardize the cooperative relationship. To balance the interests of the public and investors, we should not only protect the interests of the public from damage, but also protect the legitimate rights and interests of operators.

(thirty-one) improve the risk prevention and supervision mechanism. The government and investors should fully demonstrate the possible policy risks, commercial risks, environmental risks and legal risks of PPP projects, improve contract design, and improve dispute resolution and risk prevention mechanisms. Establish an independent, transparent, responsible and professional PPP project supervision system, and form a supervision mechanism involving government supervision departments, investors, the public, experts and the media.

(32) Improve the exit mechanism. The government should make clear the exit path of PPP project with investors to ensure the continuous and stable operation of the project. After the project cooperation, the government should organize to take over and properly handle investment recovery, asset disposal and other matters.

Ten, give full play to the guiding role of government investment.

(thirty-three) optimize the direction of government investment. Government investment is mainly invested in public welfare undertakings and capital construction. For key areas such as eco-environmental protection, agriculture, forestry and water conservancy, municipal infrastructure and social undertakings, which encourage social capital to participate, government investment can be supported according to actual conditions, and the guiding role of government investment can be given full play.

(thirty-four) to improve the efficiency of government investment. Under the same conditions, government investment gives priority to projects that introduce social capital, and supports social capital to participate in the construction of key areas through investment subsidies, capital injection, guarantee subsidies, and loan interest subsidies according to different project conditions. We will promptly formulate measures for the management of government-funded social investment projects and standardize government investment arrangements.

XI。 Innovate financing methods and broaden financing channels.

(thirty-five) explore innovative credit services. Support the development of innovative loan business such as emission rights, charging rights, collective forest rights, franchise rights, expected income from purchasing service agreements, and pledge loans for collective land contractual management rights. Explore the use of project water supply, heating, power generation, sewage, garbage disposal and other expected benefits to pledge loans, allowing the relevant income as a source of repayment. Encourage financial institutions to provide financing support for social undertakings organized by private capital.

(thirty-six) to promote agricultural financial reform. Explore credit guarantee and discount, business incentives, risk compensation, cost subsidies, investment funds, mutual credit, agricultural insurance and other ways. Strengthen the loan financing ability and risk resistance of farmers' cooperatives, family farms (forest farms), large professional households and agricultural and forestry enterprises.

(thirty-seven) give full play to the positive role of policy financial institutions. Increase support for public services, ecological environment protection and infrastructure construction projects within the business scope approved by the state. Efforts will be made to provide long-term stable and low-cost financial support for major projects such as ecological environmental protection, agriculture, forestry and water conservancy, railways and highways in the central and western regions, and urban infrastructure.

(thirty-eight) to encourage the development of investment funds and support the construction of key areas. Vigorously develop equity investment funds and venture capital funds, and encourage private capital to initiate the establishment of industrial investment funds that mainly invest in public services, ecological environment protection, infrastructure, regional development, strategic emerging industries, advanced manufacturing and other fields. The government can use financial funds, including investment in the central budget, to support it by subscribing for fund shares.

(thirty-nine) support the construction projects in key areas to carry out equity and debt financing. Vigorously develop financing tools such as debt investment plan, equity investment plan and asset support plan, extend the investment period, and guide social security funds and insurance funds to be used for infrastructure and basic industry projects with stable income and long return period. Support construction projects in key areas to raise investment funds through corporate bonds, project income bonds, corporate bonds and medium-term notes. Promote the securitization of accounts receivable of construction enterprises in railway, highway, airport and other transportation projects. Establish a standardized local government debt financing mechanism and support local governments to issue bonds according to laws and regulations for the construction of key areas.

Innovating the investment and financing mechanism in key areas plays an important role in stabilizing growth, promoting reform, restructuring and benefiting people's livelihood. All regions and relevant departments should proceed from the overall situation, further raise awareness, strengthen organizational leadership, improve working mechanisms, and coordinate and promote innovation in investment and financing mechanisms in key areas. All localities should formulate specific implementation rules in light of local conditions to ensure that all measures are implemented. All relevant departments in the State Council should strictly follow the division of labor, formulate relevant supporting measures, speed up the construction of key areas, and at the same time strengthen publicity and interpretation, so that social capital can understand relevant policies such as participation mode, operation mode, profit model and return on investment, further stabilize market expectations, fully mobilize the enthusiasm of social investment, and give full play to the key role of investment in economic growth. The Development and Reform Commission shall, jointly with relevant departments, strengthen supervision and inspection of the implementation of this guidance, and report major issues to the State Council in a timely manner.

Attachment: Division Plan of Key Policy Measures Documents

Explain the full text of Guofa No.60 in detail.

Explain the full text of Guofa No.60 in detail.

Annex of Document No.60 of Guofa

the State Council

2014165438+10/0/6