How to innovate the allocation of state-owned assets?

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近日,中共中央办公厅、国务院办公厅印发了《关于创新政府配置资源方式的指导意见》,并发出通知,要求各地区各部门结合实际认真贯彻落实。
Recently, the general office of the CPC Central Committee, the State Council issued the innovative government allocation of resources on the way of guidance, and issued a notice requiring all localities and departments to seriously implement the actual combination.
改革开放以来,随着市场化改革的不断深化,市场在资源配置中的作用日益增强,政府配置资源的范围和方式也在不断调整。在社会主义市场经济条件下,政府配置的资源主要是政府代表国家和全民所拥有的自然资源、经济资源和社会事业资源等公共资源。为解决当前政府配置资源中存在的市场价格扭曲、配置效率较低、公共服务供给不足等突出问题,需要从广度和深度上推进市场化改革,大幅度减少政府对资源的直接配置,创新配置方式,更多引入市场机制和市场化手段,提高资源配置的效率和效益。

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Since the reform and opening up, with the deepening of market-oriented reform, the role of the market in the allocation of resources has been increasing. Under the condition of socialist market economy, the resources allocated by the government are mainly public resources such as natural resources, economic resources and social resources owned by the government. In order to solve the existing government allocation of resources in the market allocation of price distortion, low efficiency, insufficient supply of public services and other outstanding issues, to promote market-oriented reforms from the breadth and depth, greatly reducing the government’s direct configuration of resources, innovative configuration, more to introduce the market mechanism and the market means, improve the efficiency and benefit the allocation of resources.
指导意见提出了四条基本原则,分别是“问题导向、分类施策。提高效率、促进公平。平台整合、信息共享。依法依规、创新监管。”
The guiding opinions put forward four basic principles, namely, problem oriented and classification. Improve efficiency and promote fairness. Platform integration and information sharing. According to the law, innovation and regulation.
特别值得关注的是,这份指导意见以经营性和非经营性为区分,提出了对不同类别国有资产的配置方式。
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Of particular concern is that the guidance to the operating and non operating as a distinction, proposed different types of state-owned assets allocation.
其中,第九至第十三提出了创新经营性国有资产配置方式。指导意见认为,对于金融类和非金融类经营性国有资产,要建立健全以管资本为主的国有资产管理体制,优化国有资本布局,推动国有资本合理流动、有序进退和优化配置,提高国有资本配置效率和效益。
Among them, ninth to thirteenth proposed innovative operating state-owned assets allocation. Guidance that the financial and nonfinancial operating state-owned assets, to establish and improve the management of capital based state-owned assets management system, optimize the layout of the state capital, to promote the rational flow of state-owned capital, orderly retreat and optimize the allocation of state-owned capital allocation, improve efficiency and effectiveness.
以下是第九至第十三条原文:
The following are ninth to thirteenth original:
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(九)优化国有资本布局。紧紧围绕服务国家战略,统筹规划国有资本战略布局,建立动态调整机制。落实国家产业政策和重点产业布局调整总体要求,优化国有资本重点投向和领域,推动国有资本向关系国家安全、国民经济命脉和国计民生的重要行业和关键领域、重点基础设施集中,向前瞻性战略性产业集中,向具有核心竞争力的优势企业集中。完善国有资本退出机制,研究国家持股金融机构的合理比例,对系统重要性金融机构保持控制力,对其他机构按照市场化原则优化股权结构,激发社会资本活力。
(nine) optimize the distribution of state-owned capital. Closely around the national strategy, overall planning of state-owned capital strategic layout, the establishment of dynamic adjustment mechanism. The implementation of the national industrial policy and key industrial layout adjustment of the overall requirements, optimize the state-owned capital investment and key areas, promote the state-owned capital to the national security, the national economy and the beneficial to the people’s livelihood important industries and key areas, key infrastructure, forward-looking and strategic industry, has concentrated to the core competitive advantages of enterprises. Improve the state-owned capital exit mechanism, a reasonable proportion of shareholding of financial institutions of the state, maintain control of systemically important financial institutions, other institutions in accordance with market principles to optimize the ownership structure, stimulate the vitality of social capital.
(十)完善国有资本授权经营体制。建立以管资本为主的国有资产监管体系,改革国有资本授权经营体制,改组组建国有资本投资、运营公司,开展政府直接授权国有资本投资、运营公司履行出资人职责的试点。国有资本投资、运营公司通过开展投资融资、产业培育、资本整合等,优化国有资本布局结构;通过股权运作、价值管理、有序进退,促进国有资本合理流动,实现保值增值。国有资本投资、运营公司作为国有资本市场化运作的专业平台,依法自主开展国有资本运作,对所出资企业行使股东职责,按照责权对应原则切实承担起国有资产保值增值责任。
(ten) improve the system of authorized operation of state owned capital. To establish the regulatory capital based state-owned assets supervision system, authorized management system reform of state-owned capital, restructuring the establishment of state-owned capital investment, operating company, to carry out direct government authorized state-owned capital investment and operating companies to fulfill the responsibilities of investor pilot. The state-owned capital investment company, operating through the development of investment and financing, industry cultivation, integration of capital, optimize the layout and structure of state-owned capital; through equity operation, value management, orderly retreat, promote the rational flow of state-owned capital, increasing the value of. The state-owned capital investment company, operating as a professional platform for state-owned capital market operation, to carry out independent operation of state-owned capital invested enterprises in accordance with the law, to exercise shareholders’ responsibilities, rights and responsibilities in accordance with the principle of correspondence and undertake the state-owned assets responsibility.
(十一)建立健全国有资本形态转换机制。坚持以管资本为主,以提高国有资本流动性为目标,积极推动经营性国有资产证券化。建立健全优胜劣汰市场化退出机制,加快处置低效无效资产,支持企业依法合规通过证券交易、产权交易等市场,以市场公允价格处置国有资产,实现国有资本形态转换,用于国家长远战略、宏观调控以及保障基本民生的需要,更好服务于国家发展目标。

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(eleven) to establish and improve the mechanism of state capital transformation. Adhere to the main pipe capital, in order to improve the liquidity of state-owned capital as the goal, and actively promote the operation of state-owned assets securitization. Establish and improve the survival of the fittest market exit mechanism, accelerate the disposal of inefficient assets, support enterprise compliance through the securities trading, property rights trading market, to the disposal of state-owned assets the fair market price, the realization of state-owned capital transformation, for the country’s long-term strategy, macro regulation and the need to protect the basic livelihood, to better serve the national development goals.
(十二)规范经营性国有资产处置和收益分配。企业重大资产转让应依托统一的公共资源交易平台公开进行。重大经营性国有资产出租、出借要引入市场机制,做到公开、公正、透明。建立覆盖全部国有企业、分级管理的国有资本经营预算管理制度,国有资本收益和国有资产处置等非税收入,必须按规定及时足额上缴国库并纳入政府预算,更多用于保障和改善民生,国家另有规定的从其规定。逐步提高国有资本收益上缴公共财政比例,划转部分国有资本充实社保基金。
(twelve) regulate the disposal of state-owned assets and income distribution. The transfer of major assets of enterprises should be carried out on the basis of a unified public resource trading platform. The introduction of market mechanisms for the rental and lending of major operating state assets shall be open, fair and transparent. The establishment of the system of state-owned capital operation budget management covers all the state-owned enterprises, management of state-owned capital gains, and the disposal of state-owned assets and other non tax revenue, according to the provisions of timely and full turned over to the state treasury and incorporated into the government budget, more used to protect and improve people’s livelihood, unless otherwise stipulated by the state from its provisions. The state capital gains paid gradually increase the proportion of public finances, transfersome state owned capital fund.
(十三)强化国有资本基础管理。守住防止国有资产流失的底线。强化国有产权流转环节监管,创新监管方式和手段,协同推进监管工作,按照收放有度要求,实现维护出资人权益和尊重企业自主经营权的有效结合。
(thirteen) strengthening the management of state-owned capital. Hold the bottom line to prevent the loss of state assets. To strengthen the supervision of state-owned property rights transfer, innovative ways and means of supervision, promote collaborative supervision, in accordance with the requirements to achieve a degree of retraction, safeguard investor interests and respect the effective combination of the decision-making power of enterprises.
此外,在指导意见的创新非经营性国有资产配置方式章节,也有很值得关注。对用于实施公共管理和提供公共服务目的的非经营性国有资产,坚持公平配置原则,积极引入竞争机制提高配置效率,提高基本公共服务的可及性、公平性。
In addition, in the guidance of innovative non operating state owned asset allocation methods chapter, there are also very worthy of attention. For the implementation of public administration and providing public services to the non operating state-owned assets, adhere to fair allocation principle, actively introduce competition mechanism to improve the allocation efficiency, improve basic public services and fairness.
以下是第十四至第十八条原文:
The following are fourteenth to eighteenth original:
(十四)推进政事分开、管办分离。区分政府作为资源配置者和行业监管者的不同职能,创新和改进政府直接配置资源的方式,强化教育、医疗、养老、文化、体育等部门的行业监管职能。放开相关行业市场准入,放松价格管制,促进公平竞争。区分基本与非基本公共服务,理顺政府与事业单位在基本公共服务供给中的关系,推进政事分开、事企分开、管办分离。创新与事业单位运行相适应的制度体系,健全事业单位法人治理结构。
(fourteen) to promote the separation of government, the separation of management. The distinction between government as different functions of the allocation of resources and industry regulators, innovation and improvement of government direct allocation of resources, strengthen the supervision of education, health care, pension, culture, sports and other departments of industry function. Liberalization of market access, relax price controls and promote fair competition. The distinction between basic and non basic public services, straighten out the government and institutions in the provision of basic public services in advance, separating enterprise from government, the separation of management. Innovation and institutions to adapt to the operation of the system, improve the corporate governance structure.
(十五)推进基本公共服务均等化。围绕均等化、标准化、法治化,加快健全国家基本公共服务制度,制定国家基本公共服务清单,动态调整服务项目和标准,促进城乡区域间服务项目和标准有机衔接,推动基本公共服务公平共享。合理确定各级政府的财政事权和支出责任。加强基本公共服务资源均衡配置,推动基层基本公共服务资源优化整合,提高服务效率。
(fifteen) to promote equalization of basic public services. On the equalization, standardization and legalization, accelerate the establishment of national basic public service system, establish the national basic public service list, dynamic adjustment of services and standards, promote urban and rural regional service items and standards of organic convergence, promoting equitable sharing of basic public services. Reasonably determine the government’s financial powers and expenditure responsibilities. Strengthen the basic public service resources balanced allocation, promote the basic public service resources optimization and integration, improve service efficiency.
(十六)创新公共服务供给方式。建立政府主导、社会参与、自主运行、公众监督的多元化公共服务供给体制。各地区各部门可以根据需要和财力状况,通过特许经营、政府购买服务等方式,扩大和改善公共产品和服务供给。推进公益类事业单位改革,强化公益属性,创新体制机制,提高供给质量和效益。制定发布政府购买服务指导性目录,引入竞争机制,提高财政资金使用效率。采取人员培训、项目指导、公益创投等多种途径和方式,提升事业单位、企业和社会组织承接政府购买服务能力。
(sixteen) innovative public service supply mode. The establishment of government led, social participation, independent operation, public supervision of the diversified public service supply system. All localities and departments can expand and improve the supply of public goods and services according to the needs and financial situation, through franchising, government procurement of services, etc.. Promote the reform of public welfare institutions, strengthen public property, innovative institutional mechanisms to improve the quality and efficiency of supply. To develop the government procurement services directory, the introduction of competition mechanism, improve the efficiency of the use of financial funds. Take personnel training, project guidance, public venture capital and other ways and means to enhance institutions, enterprises and social organizations to undertake government procurement services.
(十七)推进非经营性国有资产整合与共享。在清产核资、界定产权的基础上,进一步打破部门行政化分割,构建共享平台,实现公共科技、教育、医疗、文化等资源开放共享。建立资产共享共用与资产绩效、资产配置、单位预算挂钩的联动机制,避免资产重复配置、闲置浪费。对行政事业单位超标准配置、低效运转或者长期闲置资产,要建立完善的调剂机制,有效盘活存量资产,实现高效利用。按规定程序报经批准后,允许将部分闲置的非经营性国有资产转为经营性国有资产。
(seventeen) promoting the integration and sharing of non operating state owned assets. Based on assets, the definition of property rights, administrative departments further break the segmentation, building sharing platform, the realization of public science and technology, education, medical and cultural resources sharing. The establishment of asset sharing and asset performance, asset allocation, the linkage mechanism linked to the budget, to avoid duplication of assets, idle waste. The super standard allocation of administrative institutions, inefficient operation or long-term idle assets, to establish a sound allocation mechanism, effectively revitalize the stock of assets, to achieve efficient use. In accordance with the provisions of the procedures reported after the approval of the part of the idle non operating state-owned assets into operating state-owned assets.
(十八)推进行政事业单位资产规范管理。依据行政事业单位职能及其工作性质,按完成职能的最低限度和最优标准配置资产。制定行政事业单位资产配置标准体系,针对通用、专用资产实施不同的配置标准。严格非经营性国有资产建设项目审批,强化预算约束和财政拨款控制,符合预算管理规定的非经营性国有资产配置涉及的管理费用支出具体安排应编入预决算,经同级人民代表大会或其常务委员会审议批准后应向社会公开。建立健全全方位、多层次的资产管理和监督体系,建立工作机制,加强资产使用、处置和收益管理,确保规范高效使用、公开透明处置,确保资产处置收入和出租、出借收入应收尽收,防止国有资产流失。
(eighteen) to promote the management of the assets of administrative institutions. According to the function and the nature of the administrative institutions, according to the completion of the minimum function and the optimal allocation of assets. The establishment of administrative institutions asset allocation standard system, for the general purpose, the implementation of different specific asset allocation standards. Non operating state-owned assets construction project approval, strengthen the budget constraints and financial control, in line with the non operating state-owned asset allocation budget management requirements relating to the management of expenditure arrangements should be incorporated into the budget, by the people’s Congress or its Standing Committee for consideration and approval should be open to the public. Establish and improve all-round, multi-level asset management and supervision system, establish a working mechanism, strengthen the use and disposal of assets and earnings management, to ensure the efficient use of standardized and transparent disposal, to ensure that the disposal of assets income and rent income stipulated in the law, prevent the loss of state-owned assets.
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