Measures of Chongqing Municipality on the Administration of Special Debt Funds for the Ninth Five-Year Plan.

Chongqing dissolves the "Nine-Year Plan" debt and promotes the development of education.

First, the debt of "nine-year compulsory education" affects social stability and puzzles the development of education.

Nationwide, there are three problems and challenges in clearing, verifying and repaying the "Nine-Year Plan" debt:

First of all, in terms of debt clearing, rural areas generally lack basic data on school debt due to the lack of regular relevant statistical systems. The relationship between debt and creditor's rights of schools is complex, so it is difficult to identify and verify debt. The more intractable problem is that there is information asymmetry between the grass-roots government and the school and the higher-level government-the former has more information-especially when the latter intends to share the debt, the possibility of information distortion is further enhanced.

Second, the understanding of the ownership of debt repayment responsibility is inconsistent. Debt repayment involves the sharing of responsibilities between governments at all levels and between schools and governments. The financial resources of grass-roots governments are tight, and the pressure of infrastructure investment brought about by the expansion of junior and senior high schools is widespread in rural areas. In this case, solving the debt problem of "Pujiu" is first and foremost an ideological problem. Secondly, the government's implementation of the "debt repayment" policy may also trigger and aggravate a new round of school debt. How to establish a correct incentive mechanism is the key issue of this policy design.

Third, China's rural areas have long relied on donations from rural governments and rural residents to build schools, and its infrastructure investment has never been standardized and fully incorporated into the public finance system in reality, which is the root cause of the debt problem in the Ninth Five-Year Plan. Therefore, in order to fundamentally solve this problem, we must consider gradually establishing a guarantee mechanism for infrastructure investment in rural schools in the future.

Table 1 Problems and Challenges in Clearing, Verifying and Repaying "Pujiu" Debt

Debt settlement

(1) lacks basic data.

(2) Information asymmetry

(3) The relationship between debt and creditor's rights is unclear.

contractual payment

(1) The repayment responsibility is unknown.

(2) Limited financial resources

(3) distorted incentive mechanism

Long-term mechanism to avoid debt.

Lack of guarantee mechanism for rural school infrastructure investment

Second, the main practices and experiences of Chongqing

Chongqing is the only municipality directly under the central government in the western region, which has developed rapidly with the support of the central transfer payment since it was directly under the central government. However, due to historical reasons, the rural poor population has a large base, many debts, the arduous task of resettlement in the reservoir area, and the poor conditions for running basic education. Especially in the process of implementing "Nine-Year Universal Education" in primary and secondary schools and consolidating and improving after reaching the standard, many districts, counties, township governments and schools are burdened with quite heavy debts due to financial reasons.

Before 200 1, these debts were mainly repaid year by year by collecting rural education surcharge and raising rural education funds. After the rural tax and fee reform in 2002, the rural education surcharge and rural education fund-raising were cancelled. Coupled with the lack of financial resources at the county and township levels, the repayment of education debt has lost its main source of funds, and the problem of education debt has become increasingly prominent: the construction team failed to recover the money, and some schools blocked the school gates and teaching buildings, sealed up accounts, and took the principals to court; Many township cadres hide their debts everywhere and cannot work normally; The contradiction caused by the wage arrears of migrant workers is getting worse. Migrant workers have no money to send their children to school, and the dropout rate of rural students has increased from time to time. Heavy debts seriously interfere with the normal education and teaching order of schools, affect social stability and damage the image of the government. Therefore, "Pujiu" debt has become a hot potato in the work of local governments, and it is also one of the difficult problems that plague the development of education.

Only by paying off debts can we get out of the predicament, ensure social stability and promote development. Therefore, the Chongqing Municipal Party Committee and Municipal Government decided to take the repayment of the "Nine-Year Plan" debt as the popular project of the current government. From 2004, it will take three years for the municipal, district and county finances to arrange debt repayment funds to complete the "Nine-Year Plan" debt repayment task.

Since August 2003, the Municipal Finance Bureau, the Municipal Education Commission, the Municipal Supervision Bureau and the Municipal Audit Bureau have jointly carried out the work of clearing up and verifying the debts owed by the "Pujiu" before the end of 2002. On the basis of this work, a debt repayment policy was implemented. According to the analysis framework proposed in Table 1, this work in Chongqing has the following characteristics and experiences:

Table 2 Practice and experience of Chongqing

be in debt

clear

(1) lacks basic data.

(1) Solid and rigorous preliminary data collection and debt verification;

(2) Develop a debt statistics and analysis framework suitable for local conditions;

(3) With the help of specialized social intermediaries;

(4) Taking the most basic unit of debt statistics-debt items-as the unit of debt management and repayment;

(5) Adopt information management system.

(2) Information asymmetry

(3) The relationship between debt and creditor's rights is unclear.

be in debt

pay back

(1) The repayment responsibility is unknown.

(1) Unified understanding and leadership attention;

(2) According to the different situations of each district and county, formulate the sharing policies of governments at all levels.

(2) Limited financial resources

Effectively use the transfer payment funds from higher authorities ("three awards and one supplement" funds and rural tax and fee reform transfer payment funds, and give priority to solving the "Pujiu" debt problem.

(3) distorted incentive mechanism

Long-term mechanism to avoid debt.

Lack of guarantee mechanism for rural school infrastructure investment

The main approach is:

First, ideological understanding is unified and leaders attach great importance to it.

The Chongqing Municipal Party Committee and Municipal Government attaches great importance to the relevant requirements of the Opinions of the Central Committee and the State Council on Doing a Good Job in Agriculture and Rural Areas (Zhongfa [2003] No.3) and the Notice of the General Office of the State Council on Perfecting the Management System of Compulsory Education in Rural Areas (Zhongfa [2002] No.28), and strives to establish Scientific Outlook on Development's outlook on political achievements in ideological understanding and regards education as the main responsibility of the government.

Since 2003, the Municipal Party Committee and the Municipal Government have been determined to find out the basic situation of the city's "Ninth Five-Year Plan" debt and gradually solve the debt problem in a planned way. Will resolve the "Pujiu" debt into the work schedule, and Executive Vice Mayor Huang will personally focus on it; Chongqing Municipal Education Commission, finance, supervision and auditing departments should designate special persons to be responsible; A working group was set up, headed by the main leaders of the districts and counties, with the education commission, finance, supervision and auditing departments as members. According to the principle of "who borrows and pays back" and the accountability system of the Chief Executive, it is also a political achievement to establish the idea of paying off debts, and the district and county governments are responsible for digesting local debts in the Ninth Five-Year Plan. Municipal finance is responsible for the implementation of municipal subsidy funds, and the Education Commission cooperates with financial organizations to implement debt repayment. District and county finance is responsible for the implementation of district and county debt repayment funds, and the Education Commission cooperates with the finance to do a good job in the declaration and audit of debt repayment materials, so as to basically achieve a unified understanding, clear responsibilities and clear goals.

1, determine that the city and district * * * share the responsibility. The debt repayment in the Ninth Five-Year Plan of the whole city is based on the financial situation of all districts and counties, and the principle that the cities and counties should bear the debts respectively according to a certain proportion is implemented, that is, 18 the key counties (districts) in the national poverty alleviation and development work share the debts with the cities and counties according to the ratio of 5: 5, the nearly nine districts share the debts with the cities and counties according to the ratio of 2: 8, and the rest districts and counties share the debts with the cities and counties according to the ratio of 4: 6. According to this ratio, the municipal finance should allocate 690 million yuan for debt repayment, and the district and county finance should allocate 920 million yuan for debt repayment. This method not only clarifies the responsibilities, but also further mobilizes the enthusiasm of district and county governments to complete the "Ninth Five-Year Plan" debts.

2, clear the source of county debt service funds. The "three awards and one subsidy" funds issued by the municipal level to the districts and counties are first used to repay the "Pujiu" debt, and the amount is not less than 80%; In the reform of rural taxes and fees, the city's transfer payment funds to districts and counties are first arranged for debt repayment; Special funds for the Ninth Five-Year Plan arranged by county-level financial resources; The school meets the requirements of self-financing. However, other special funds, tuition and fees, accommodation fees, agency fees and bank loans arranged by higher authorities cannot be used as matching funds for counties.

3. Establish a debt "sales number system" and a "direct payment system".

The "sales number system" is to adhere to a single "Pujiu" debt project, which is paid off in full by the matching funds of the districts and counties, and then paid off in full by the municipal level for another single "Pujiu" debt project. The amount paid off by the city to the districts and counties as a whole is still shared according to the prescribed proportion. Since 2004, Chongqing has implemented the "Nine-Year Plan" for debt repayment. The audit of sales number data is entrusted to an accounting firm, and the education commission and finance coordinate with each other.

The specific practices of the "Pujiu" debt sales number verification team are as follows: First, lock in debts and establish "Pujiu" debt project libraries in various districts and counties. Secondly, according to the sales number data declared by districts and counties, the amount of debt projects is reviewed one by one, the source of debt repayment funds is clear and compliant, the sales number data is complete, and the money is returned to creditors. Unless the funds are implemented, the creditor does not recognize the number, the information is incomplete, the creditor's rights transfer procedures are incomplete, and the account number is unknown, the funds may not be allocated. Adhere to the working principles of selling numbers first, reporting first, reviewing first, confirming first and allocating funds first. In three years, 9,659 debts were sold, and in 2004, 65.438+0.6 billion yuan was paid off. In 2005, the debt was 965.438 billion yuan; In 2006, the debt was paid 540 million yuan. By the end of June, 2006, Chongqing had fully completed 42 counties 1 1 1 billion "Pujiu" debts.

The purpose of the cancellation mechanism is: first, to ensure that all debt repayment funds are implemented to creditors/units. Second, encourage grass-roots governments to pay their responsible funds in full and on time.

"Direct payment system" refers to that the Municipal Education Commission and the Municipal Finance arrange the sales number of municipal subsidy funds according to the district and county sales number items and the amount of funds confirmed by the audit, and the municipal finance directly allocates the subsidy funds to the creditors' accounts to ensure the true repayment of debts.

At the same time, the Chongqing Municipal Education Commission and the Finance Bureau successively issued the Measures for the Administration of Special Funds for Debt Repayment in Chongqing during the Ninth Five-Year Plan, the Supplementary Notice on Debt Repayment in Chongqing during the Ninth Five-Year Plan, and other documents and various work forms, which clarified the sources of debt repayment funds, procedures and methods for auditing cancellation numbers, and ensured the smooth progress of debt repayment.

4. Improve the working system and strengthen the supervision mechanism. In order to ensure the implementation of the city's "Nine-Year Plan" repayment, Chongqing has established a monthly work report system, an inspection system and an accountability system.

Monthly work report system: report the sales of district and county numbers and the allocation of municipal funds to governments, finance, education commission and supervision departments at all levels in the form of "briefing" every month.

Work supervision system: The Education Commission and other departments will organize personnel to supervise the districts and counties with ineffective measures, inadequate responsibilities and slow progress, and pay a return visit to the districts and counties that have fully completed the debt repayment cancellation work of the "Pujiu", so as to timely understand the authenticity of the debt repayment of the "Pujiu" and the problems existing in the debt repayment process, so as to do a good job.

Accountability system: leaders will be held accountable for the districts and counties that are ineffective in handling affairs and whose work delays affect the completion of the city's tasks.

Second, formulate more rigorous debt statistics and analysis caliber in line with local reality.

The specific person in charge of the Chongqing Municipal Education Commission and the financial department conducted a solid investigation in advance to clear the debts. In 2003, faced with the "Pujiu" debts with long formation time, large scale, various names and complicated creditor's rights relationship, Chongqing first entrusted 12 accounting firm to clean up and verify the "Pujiu" debts of 42 districts and counties before the end of 2002.

After half a year's clean-up and verification, it was finally determined that the city's "Ninth Five-Year Plan" debt reached 20 1 billion yuan, which can be included in the scope of municipal subsidies, involving 9,659 projects in more than 1 000 schools. According to the purpose of debt, the debt of school building construction accounts for 865,438+0.4%, the debt of equipment purchase accounts for 9.5%, the debt of land expropriation accounts for 7.8%, and other debts account for 65,438+0.3%. From the perspective of capital structure, the construction team owes 36.6%, borrows from domestic and foreign banks 15.5%, borrows from other units and employees 15.6%, borrows from students' parents 4.7%, borrows from "three finances and three chaos" institutions 9.2% and borrows from others 28.4%.

Through this verification, Chongqing has formulated a more rigorous and local analysis standard for debt and creditor's rights liquidation (see Table 3 for details). This debt analysis and clearing caliber is divided into three dimensions: debt source, debt level and debt use. This analytical statistical caliber has certain reference significance.