二、2015年中央和地方预算草案 II.
Central and Local Draft Budgets for 2015
2015年是全面深化改革的关键之年,是全面推进依法治国的开局之年,也是全面完成“十二五”规划的收官之年。编制好2015年预算,进一步发挥好财政职能作用,对于贯彻落实党中央、国务院各项决策部署,推进国家治理体系和治理能力现代化,具有十分重要的意义。
The year 2015 will be crucial to
the comprehensive deepening of reform; it is the first year for comprehensively
advancing the law-based governance of China and the final year for completing
the Twelfth Five-Year Plan. When it
comes to carrying out the policies and plans of the CPC Central Committee and
the State Council, and modernizing our nation’s governance system and capacity
for governance, it is of great significance that the budgets for 2015 are well
formulated, and that we go further in giving proper expression to the role of
public finance.
2015年国内外经济形势依然错综复杂。受经济下行压力加大、结构调整深化、全面推进改革、财政收入增速下降等影响,今年收支矛盾更加突出。根据面临的财政经济形势,2015年财政工作和预算编制,要全面贯彻落实党的十八大和十八届三中、四中全会以及中央经济工作会议精神,深入贯彻习近平总书记系列重要讲话精神,按照党中央、国务院决策部署,坚持稳中求进、改革创新,继续实施积极的财政政策并适当加大力度,充分发挥财税政策促进稳增长、调结构、促改革的重要作用;深化财税体制改革,全面落实新预算法和国务院关于深化预算管理制度改革的决定,完善预算管理各项制度,切实推进预算公开透明;健全政府预算体系,加大预算统筹力度;用好增量,盘活存量,优化财政支出结构,有保有压,确保重点领域特别是民生领域支出,从严控制一般性支出,严肃财经纪律;加强地方政府性债务管理,切实防范财政风险,促进经济平稳健康发展和社会和谐稳定。
In 2015, the domestic and
international economic situation will remain complicated. With the impact of
growing downward pressure on the economy, further structural adjustments,
all-round reform, and the slowdown in the growth of government revenue, the
imbalance in government revenue and expenditure this year will be more notable.
In light of the fiscal and economic situation that we face, in carrying out
public finance work and preparing the budgets for 2015, we need to fully put
into practice the guiding principles of the 18th National Congress of the CPC,
the third and fourth plenary sessions of its 18th Central Committee, and the
Central Economic Work Conference; act in the spirit of General Secretary Xi
Jinping’s major speeches and, on the basis of the decisions and plans of the
CPC Central Committee and the State Council, persevere with seeking progress
while keeping performance stable and with carrying out reforms and innovations.
We need to continue to implement proactive fiscal policy and, to an appropriate
extent, step up the intensity, giving full scope to the important role of
fiscal and tax policies in stabilizing growth, advancing structural adjustment,
and promoting reform. We need to deepen reform of the fiscal and tax systems,
thoroughly put into effect the new Budget
Law and the decision of the State Council on deepening reform of the budget
management system, improve regulations on budgetary management, and make our
budgets more open and transparent. We need to improve the government budgeting
system and increase the coordination between budgets. We need to make good use
of both available and additional funds, and optimize the structure of budgetary
expenditures, ensuring spending in some areas while cutting it in others so
that spending in key areas, especially areas relating to the people’s quality
of life, is guaranteed while general expenditures are brought under tight
control. We must enforce strict financial discipline. We must strengthen
management of local government debt, be on our guard against fiscal risks, and
give impetus to steady, sound economic development and social harmony and
stability.
新预算法于2015年实施。2015年中央和地方预算编制,严格落实新预算法要求。一是详细报告新预算法规定的人民代表大会审查预算的重点事项,包括上年度预算执行、本年度预算安排、政府债务、转移支付等。二是重点报告支出预算和财政政策,自觉接受监督。三是盘活财政存量资金。中央和地方财政进一步清理结转结余资金,严格控制新增结转结余,将清理出来的资金统筹用于经济社会发展的重点领域。四是加大预算统筹力度。将政府性基金预算中地方教育附加等11项基金收支列入一般公共预算;进一步提高国有资本经营预算调入一般公共预算的比例。五是细化预算编制。将预算草案中的中央本级和中央部门基本支出预算细化到经济分类科目;在分项目编报转移支付预算的基础上,分地区编报转移支付预算;进一步压缩代编预算规模,提高年初预算到位率。六是全面推进预算公开。除涉密信息外,所有使用财政拨款的部门都要做好预算公开。
The new Budget Law comes into effect in 2015, thus the requirements of
that law must be strictly complied with in preparing the central and local
government budgets for this year.
First, key items in the budgets
that, according to the stipulations of the new Budget Law, are subject to examination and approval by people’s
congresses, need to be reported in detail, including the implementation of the
previous year’s budgets, arrangements for this year’s budgets, government debt,
and transfer payments.
Second, the emphasis must be on
reporting on budgeted expenditure and fiscal policies so as to actively invite
oversight.
Third, available funds need to be
put to good use. The central and local governments will go further to sort out
carryover and surplus funds, keep newly added carryover and surplus funds under
strict control, and make use of recovered funds in key areas of economic and
social development.
Fourth, efforts to carry out
overall planning for budgets need to be intensified. Revenue and expenditure
from local educational surcharge and ten other funds will be transferred from
government-managed funds budgets to general public budgets. And the proportion
of funds to be transferred from the budgets for state capital operations to the
general public budgets will be further increased.
Fifth, budgets need to be made
more detailed. Budgets for basic expenditures at the central level and for
central government departments in the draft budgets need to be detailed down to
the specific economic category. On the basis of having itemized budgets for
transfer payments by project, such budgets also need to be detailed to specific
regions. The overall size of budgets compiled by finance departments for other
departments and projects will be further cut back, and we will make more funds
for budgetary items available at the start of the year.
Sixth, we need to make progress
across the board in releasing budgets. With the exception of cases in which
classified information is involved, any department that receives government
appropriations must make its budgets open to the public.
(一)2015年财政政策。 1. Fiscal
policy for 2015
2015年继续实施积极的财政政策并适当加大力度,主要体现在四个方面:一是适当扩大财政赤字规模和动用以前年度结转资金,加大支出力度。2015年全国财政赤字16200亿元,比2014年增加2700亿元,中央和地方财政赤字规模都有所增加。赤字占国内生产总值的比重约2.3%,比2014年提高0.2个百分点。此外,纳入政府性基金预算管理的地方政府专项债务增加1000亿元,中央财政动用以前年度结转资金1124亿元,进一步加大支出力度。二是实行结构性减税和普遍性降费,加强对实体经济的支持。结合税制改革,在清理规范税收等优惠政策的同时,力争全面完成营改增任务,进一步消除重复征税。落实好普遍性降费措施,减免涉及小微企业的有关行政事业性收费和政府性基金,继续清理乱收费,切实减轻小微企业负担。三是加大盘活财政存量资金力度,提高财政资金使用效益。按照新预算法要求,清理结转结余资金,将盘活的财政资金重点投向民生改善、公共服务和基础设施等领域。清理财政专户,设定预算周转金和预算稳定调节基金的上限,编制三年滚动财政规划,防止产生新的资金沉淀。四是保持一定的政府投资规模,发挥好引导作用。2015年安排中央基建投资4776亿元,比上年增加200亿元。调整优化安排方向,主要用于国家重大工程,跨地区、跨流域的投资项目以及外部性强的重点项目,进一步减少竞争性领域投入和对地方的小、散项目投资补助。
We will continue to implement
proactive fiscal policy in 2015 and, as appropriate, increase the intensity.
This will be mainly reflected in the following four areas:
First, we will increase the
deficit by an appropriate amount and put to use funds carried over from
previous years to increase the intensity of spending. Government deficit for
2015 is projected to be 1.62 trillion yuan nationwide, an increase of 270 billion
yuan over last year, with increases in both the central government deficit and
the local government deficit. This means that the deficit to GDP ratio will
come to approximately 2.3%, up 0.2 percentage points on last year. In addition,
the special debt of local governments that has been placed under the management
of government-managed funds budgets will be increased by 100 billion yuan; and
the central government will use 112.4 billion yuan of funds carried over from
previous years to further increase the intensity of spending.
Second, we will implement
structural tax cuts as well as reductions to fees across the board to
strengthen our support for the real economy. As we push forward with the reform
of the tax system, we will review and standardize tax relief and other
preferential policies, and channel great energy into completing our work to
replace business tax with VAT in all industries, thus further eliminating
duplicate tax charges. We will make sure measures to reduce fees across the
board are fully implemented, reduce or waive payments into government-managed
funds as well as administrative charges for small and micro businesses, and
continue to do away with unauthorized charges in order to relieve the burden on
these enterprises.
Third, we will strengthen efforts
to make use of available government funds, and use funds more effectively. We
will act in line with the requirements of the new Budget Law to develop an
accurate picture of carryover and surplus funds, and in putting these funds to use
we will favor areas such as public services, infrastructure, and improving
quality of life. We will review special fiscal accounts, set ceilings for
working capital in the budgets and budget stabilization funds, and carry out
fiscal planning on a rolling basis for the next three years to prevent new
funds from becoming idle.
Fourth, we will keep government
investments at a certain scale, and make good use of the guiding role of such
investments. This year the central government will earmark 477.6 billion yuan
for investment in infrastructure, which is 20 billion yuan more than the
previous year. The orientation of government investment will be adjusted and
improved, with funds being used primarily for major state projects,
trans-regional and cross-watershed investment projects, and major projects with
strong externalities. We will further reduce investment in competitive areas
and on subsidizing small and miscellaneous local projects.
主要支出政策:
Major spending policies are as
follows:
教育方面。实施第二期学前教育行动计划。继续聚焦贫困地区、聚焦薄弱学校,支持和引导地方加大贫困地区农村中小学寄宿制学校建设、县镇“大班额”学校扩容改造、中小学生活附属设施建设等方面的投入力度,全面改善义务教育薄弱学校基本办学条件。落实国家资助政策体系。将中职学校、普通高中国家助学金两项助学金标准从年生均1500元提高到2000元。继续实施现代职业教育质量提升计划,引导和激励地方加快完善高职院校生均拨款制度,中央财政将根据各地拨款制度建立、经费投入、改革发展等因素给予综合奖补。改革完善中央高校投入机制,合理分担培养成本,促进内涵式发展和创新人才培养。支持地方高校发展,促进提高质量、办出特色。推动教育国际交流合作。
Education
We will carry out the second
phase of the action plan for preschool education. Our focus will continue to be
on poor areas and schools that are badly built and poorly operated, and support
and guidance will be given to local governments to encourage them to increase
input into efforts to develop primary and secondary boarding schools in poor
rural areas, expand and renovate schools in counties and townships to help them
cope with increasing class sizes as more and more students from villages attend
these schools, and improve facilities for primary and secondary school
students, all with the aim of improving the basic conditions of badly built and
poorly operated schools for compulsory education. We will implement the system
of government financial aid policies. We will raise the annual government
grants for students in secondary vocational schools and regular senior high
schools from 1,500 yuan to 2,000 yuan per student. We will continue to
implement the quality improvement plan for modern vocational education, and
guide and incentivize local governments to step up the pace of work to improve
their systems for allocating funds to vocational colleges based on student
numbers. In this regard, awards and subsidies will be given to local
governments from the central budget based on an evaluation of their respective
progress in developing such a system, contribution of financial resources,
reform and development in vocational education, and other factors. We will
reform and improve the funding mechanisms for institutions of higher learning
under the central government so that the cost of education can be shared
between the government and students in a reasonable way; and we will encourage
these institutions to embrace an internal quality building model of development
and cultivate innovative students. We will support the development of local
universities and colleges, pushing them to improve quality and helping them
bring out their own distinct features. Impetus will be given to international
exchange and cooperation in education.
科技方面。落实创新驱动发展战略。深化中央财政科技计划(专项、基金等)管理改革,积极推进各类科技计划优化整合,建立公开统一的国家科技管理平台,构建全链条、一体化的组织实施方式。改进加强科研项目和资金管理。增加国家科技成果转化引导基金规模,吸引更多社会资金、金融资本支持科技成果转化。设立国家新兴产业创业投资引导基金,主要投向新兴产业早中期、初创期创新型企业,通过政府和社会、民间资金协同发力,促进创业创新和产业升级。建立国家重大科研基础设施和大型科研仪器向社会开放的后补助机制,促进科技资源开放共享。完善中央级科研机构投入机制。加大基础研究投入,支持提高原始创新能力。支持加快推进实施国家科技重大专项。完善政府采购支持创新的政策措施,加大创新产品采购力度。开展首台(套)重大技术装备保险补偿机制试点。
Science
and technology
We will put into practice the
strategy of innovation-driven development. We will deepen reform in the
management of science and technology initiatives (projects and funds) financed
by the central government, taking proactive steps to optimize and integrate all
types of science and technology initiatives, establishing an open and unified
national science and technology management platform, and developing
comprehensive, integrated methods for planning and implementing initiatives. We
will improve and strengthen the management of research programs and their
funding. We will expand the scale of the national seed fund for the application
of scientific and technological advances and attract more nongovernmental funds
and financial capital to support application. We will establish a national seed
fund for investment in business start-ups in emerging industries, offering
financial support primarily to innovative enterprises in emerging industries
which are still in the embryonic stage, thus generating impetus for new
businesses, innovation, and the upgrading of industry by pooling government,
nongovernment, and private funds. We will promote the open sharing of
scientific and technological resources by establishing a mechanism of
subsidizing operators of major national facilities for scientific research and
large or costly research apparatus who allow public access to their facilities.
We will improve the funding mechanism for research institutes at the central
level. We will increase spending on basic research and support efforts that
raise our ability to make original innovations. We will give financial support
to speed up progress in major national science and technology initiatives. We
will improve government procurement policies and measures that support
innovation and increase procurement of innovative products. Trials will be
launched to test a compensation mechanism for insuring major newly developed
technological equipment.
社会保障和就业方面。继续按照10%的幅度提高企业退休人员基本养老金水平。以制度本身精算平衡为重点,改革完善统账结合的职工基本养老保险制度,堵塞制度漏洞,增强基金支撑能力。
Social
security and employment
We will keep to the rate of 10%
in raising basic pension benefits for enterprise retirees. In reforming and
improving the basic pension system for workers, we will focus on actuarial
balance, combining contributions from different sources with funds in personal
accounts, so as to close loopholes in the system and strengthen the supporting
capacity of the insurance fund.
建立机关事业单位基本养老保险制度,单位按工资总额的20%缴费,个人按缴费工资基数的8%缴费。建立职业年金制度,单位按工资总额的8%缴费,个人按缴费工资基数的4%缴费。同时,调整机关事业单位工作人员工资。推进在县以下机关实行公务员职务与职级并行制度。完成规范公务员津贴补贴和事业单位实施绩效工资工作,研究建立地区附加津贴制度。
A basic pension system for the
employees of Party and government offices and public institutions will be
established, in which the contribution from the employer is equivalent to 20%
of the employee’s total salary and the individual contribution is equivalent to
8% of the base figure of the employee’s salary. An occupational annuity system
will also be established, in which the contribution from the employer is
equivalent to 8% of an employee’s total salary and the individual contribution
is equivalent to 4% of the base figure of the employee’s salary. Adjustments
will be made to the salaries of employees in government bodies and public
institutions. For public servants at the county level or lower, a salary system
based on both position and rank will be implemented. We will complete work on
standardizing allowances and subsidies for public servants and introducing
performance-based pay in public institutions, and conduct research on the
establishment of a system of additional allowances for certain areas.
加大对困难群众基本生活救助补助的支持力度,全面实施临时救助制度,做好城乡居民最低生活保障工作。适时调整优抚对象等人员抚恤和生活补助标准。
We will increase support for
financial aid and living subsidies to people facing serious difficulties to
ensure that they have access to basic necessities, implement the temporary
assistance system nationwide, and make sure work related to the subsistence
allowances for both urban and rural residents is done properly. Adjustments
will be made to subsidies and living allowances for entitled groups when appropriate. |
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