二、2020年中央和地方预算草案
II. Draft Central and Local Budgets for 2020 文章源自英文巴士-https://www.en84.com/9341.html
文章源自英文巴士-https://www.en84.com/9341.html
2020年是全面建成小康社会和“十三五”规划收官之年，也是脱贫攻坚决战决胜之年，做好预算编制和财政工作意义重大。要按照党中央、国务院部署要求，统筹推进疫情防控和经济社会发展工作，科学研判财政形势，合理编制财政预算，系统谋划财政工作，确保完成决战决胜脱贫攻坚目标任务，全面建成小康社会。文章源自英文巴士-https://www.en84.com/9341.html
文章源自英文巴士-https://www.en84.com/9341.html
The year 2020 is the final year of building a moderately prosperous society in all respects and implementing the 13th Five-Year Plan. It is also the year of securing a decisive victory in the battle against poverty. This makes the compilation of this year’s budgets and public finance work all the more important.文章源自英文巴士-https://www.en84.com/9341.html
文章源自英文巴士-https://www.en84.com/9341.html
We will follow the plans and requirements of the Party Central Committee and the State Council, and coordinate our efforts to effectively control the epidemic and advance China’s economic and social agenda. We will accurately assess the economic situation, properly compile budgets, systematically plan public finance work, and ensure a decisive victory over poverty and achieve moderate prosperity.文章源自英文巴士-https://www.en84.com/9341.html
文章源自英文巴士-https://www.en84.com/9341.html
（一）2020年财政收支形势分析。文章源自英文巴士-https://www.en84.com/9341.html
文章源自英文巴士-https://www.en84.com/9341.html
1. Analysis on the prospects for fiscal revenue and expenditure in 2020
当前，受全球疫情冲击，世界经济严重衰退，产业链供应链循环受阻，国际贸易投资萎缩，大宗商品市场动荡。国内消费、投资、出口下滑，就业压力显著加大，企业特别是民营企业、中小微企业困难凸显，财政收支矛盾加剧，财政运行压力增加。
At present, due to the shock of the covid-19 pandemic, the world economy is in severe recession, the fluidity of industrial and supply chains is constricted, international trade and investment have contracted, and commodity markets are volatile. Domestically, consumption, investment, and exports have declined. Pressure on employment has risen significantly. Businesses, especially private firms and micro, small, and medium enterprises, face growing difficulties. The imbalance between revenue and expenditures is becoming more pronounced; and there is increasing pressure on fiscal operations.
从财政收入看，受疫情冲击、减税降费等因素影响，今年1－4月财政收入下降14.5%，其中1月下降3.9%，2月下降21.4%，3月下降26.1%，4月下降15%，降幅在一季度逐月扩大后出现缩小态势。预计今年后几个月，随着生产生活秩序恢复，财政收入开始企稳回升，但仍有较大不确定性。一般公共预算收入二季度可能维持负增长，下半年可能出现恢复增长并回补部分上半年减收。
From a fiscal revenue perspective, due to the impact of the crisis and the effect of tax and fee cuts, fiscal revenue in the first four months of 2020 fell by 14.5%. Revenue dropped by a progressively larger margin in the first quarter of the year – 3.9% in January, 21.4% in February, and 26.1% in March, and by a relatively smaller margin of 15% in April. In the months to come, as work and life routines are restored, we forecast that fiscal revenue will see the beginnings of a stable recovery, though great uncertainty remains. The general public budget may continue to post negative growth in the second quarter, while the latter half of the year may see a return to positive growth, which would make up for some of the revenue reduction of the first half of year.
从财政支出看，统筹推进疫情防控和经济社会发展工作，全力保障完成决战决胜脱贫攻坚目标任务、全面建成小康社会，财政支出仍要保持一定强度，特别是各级财政为疫情防控投入大量资金，落实“六保”任务、实施减税降费也需要财力支撑，一些地区因阶段性减免社会保险费需对基金予以必要财政补助。
From a fiscal expenditure perspective, a certain level of fiscal spending will need to be maintained to promote coordinated progress on covid-19 control and economic and social development, provide ample support for achieving a decisive victory over poverty, and finish building a moderately prosperous society in all respects. In particular, governments at all levels have spent a great deal of money on the epidemic response. Our efforts to maintain security in six areas and cut taxes and fees also need fiscal support, and some localities will require fiscal subsidies for their social security funds owing to the policy of temporarily reducing social insurance premiums.
当前和今后一个时期，我国发展面临风险挑战前所未有，但我们有独特政治和制度优势、雄厚经济基础、巨大市场潜力，亿万人民勤劳智慧。只要直面挑战，坚定发展信心，增强发展动力，当前的难关一定能闯过，中国的发展必将充满希望。这是我们做好财政工作、发挥财政职能作用的坚实基础和坚强后盾。
At present and for some time to come, China will face risks and challenges like never before. However, we have unique political and institutional strengths, a strong economic foundation, enormous market potential, and hundreds of millions of intelligent and hardworking people. We just have to face challenges head-on, boost confidence in development, and create strong impetus for growth, and we will, without doubt, be able to get across the narrow pass of the present and embrace a bright future for China’s development. These are the solid foundations and supports that will ensure we accomplish our public finance work and give play to the roles and functions of public finance.
（二）2020年预算编制和财政工作的指导思想和原则。
2. The thinking and principles guiding the preparation of the 2020 budget and public finance work
今年预算编制和财政工作，要在以习近平同志为核心的党中央坚强领导下，以习近平新时代中国特色社会主义思想为指导，全面贯彻党的十九大和十九届二中、三中、四中全会精神，坚决贯彻党的基本理论、基本路线、基本方略，增强“四个意识”、坚定“四个自信”、做到“两个维护”，紧扣全面建成小康社会目标任务，统筹推进疫情防控和经济社会发展工作，在疫情防控常态化前提下，坚持稳中求进工作总基调，坚持新发展理念，坚持以供给侧结构性改革为主线，坚持以改革开放为动力推动高质量发展，坚决打好三大攻坚战，加大“六稳”工作力度，保居民就业、保基本民生、保市场主体、保粮食能源安全、保产业链供应链稳定、保基层运转，坚定实施扩大内需战略，以更大的宏观政策力度对冲疫情影响，积极的财政政策要更加积极有为，提高赤字率，发行抗疫特别国债，增加地方政府专项债券，坚持精打细算、把钱用在刀刃上，提高资金使用效率，真正发挥稳定经济的关键作用，维护经济发展和社会稳定大局，确保完成决战决胜脱贫攻坚目标任务，全面建成小康社会。
The thinking guiding this year’s budget preparation and public finance work is as follows:
- Follow the strong leadership of the Party Central Committee with Comrade Xi Jinping at its core
- Take Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era as our guide
- Fully implement the guiding principles of the Party’s 19th National Congress and the second, third, and fourth plenary sessions of its 19th Central Committee
- Firmly put into practice the Party’s basic theory, line, and policy
- Strengthen our consciousness of the need to maintain political integrity, think in big-picture terms, follow the leadership core, and keep in alignment with the central Party leadership
- Have firm confidence in the path, theory, system, and culture of socialism with Chinese characteristics
- Uphold General Secretary Xi Jinping’s core position on the Party Central Committee and in the Party as a whole and uphold the Central Committee’s authority and its centralized, unified leadership
- Focus on the objectives and tasks for completing the building of a moderately prosperous society in all respects
- Coordinate the work of covid-19 containment and the tasks of economic and social development
- Continue regular covid-19 control
- Adhere to the general principle of pursuing progress while ensuring stability
- Continue to apply the new development philosophy
- Continue to regard supply-side structural reform as our main task
- Continue to draw on the impetus of reform and opening up to drive high-quality development
- Achieve decisive progress on the three critical battles
- Step up efforts to ensure stability on the six fronts and maintain security in the six areas
- Firmly implement the strategy of expanding domestic demand and offset the impact of the covid-19 outbreak with stronger macro policies
- Pursue a proactive fiscal policy that is more proactive and impactful
- Raise the deficit-to-GDP ratio, issue government bonds for covid-19 control, and increase the special-purpose bonds issued by local governments
- Scrutinize all expenditure items and see that every sum is spent where it is needed most
- Improve the efficacy of expenditure and give full play to its crucial role in stabilizing the economy
- Maintain economic and social development and social stability, ensure a decisive victory in the fight against poverty, and bring to completion the building of a moderately prosperous society
贯彻上述指导思想，要着重把握好以下原则：一是艰苦奋斗、勤俭节约。坚决落实政府真正过紧日子要求，开源节流、增收节支、精打细算，执守简朴、力戒浮华，厉行节约办一切事业。二是以收定支、提质增效。实事求是编制收入预算，提高财政收入质量。坚持量入为出、有保有压、可压尽压，打破基数概念和支出固化格局。三是加强管理、严肃纪律。坚持先有预算后有支出，严控预算追加事项。严格遵守财经法律法规和制度规定，对违反财经纪律的，严肃追究责任。四是上下联动、齐心协力。强化全国“一盘棋”思想，加强中央与地方协同配合，在应对疫情冲击、落实财税改革部署、强化财政收支管理、增强财政可持续性和经济社会发展后劲等方面形成强大合力。
To put the above thinking into action, we need to focus on applying the following principles:
First, working hard and economizing. Government must truly tighten its belt, grow its revenue streams and reduce expenses, and carefully cost and count all spending. We will keep things as simple as possible, abstain from all excess, and practice economy in all activities.
Second, basing expenditures on receipts and enhancing quality and efficiency. We must prepare revenue budgets in a realistic and pragmatic fashion, and work to improve the quality of receipts. We will continue to measure outlays based on receipts, continue to spend in some areas and to cut in others, and make cuts to expenditures wherever possible. We will break with the idea of base budgets and fixed expenditure patterns.
Third, strengthening management and enforcing strict discipline. We will insist that a budget first be in place before an outlay is made, and keep strict control over additional budgetary items. We will strictly comply with the provisions of financial and economic laws and regulations and hold to account those who violate financial and economic discipline.
Fourth, coordinating the actions of central and local authorities and getting all levels working as one. We will bear in mind the importance of coordinating resources nationwide, foster stronger collaboration and support between the central and local governments, and generate powerful synergy for overcoming the impact of the virus, implementing fiscal and tax reform plans, strengthening management of fiscal receipts and outlays, and enhancing the sustainability of public finance and economic and social development.
（三）2020年财政政策和财政工作。
3. Fiscal policy and fiscal tasks in 2020
2020年积极的财政政策要更加积极有为，围绕做好“六稳”工作、落实“六保”任务，以更大的政策力度对冲疫情影响，真正发挥稳定经济的关键作用。2020年的财政政策重点包括：
Our proactive fiscal policy will be made more proactive and impactful in 2020. Great efforts will be made to ensure stability on the six fronts and security in the six areas. We will adopt stronger policies to mitigate the impact of the covid-19 outbreak, and see that we truly serve as a key ballast for the economy.
Priorities in fiscal policy in 2020 include the following:
一是加大减税降费力度。强化阶段性政策，与制度性安排相结合，重点减轻中小微企业、个体工商户和困难行业企业税费负担。前期出台的6月前到期的主要减税降费政策，执行期限延长到今年年底，支持市场主体纾困发展，努力稳企业保就业。预计全年为市场主体新增减负将超过2.5万亿元。
First, we will step up tax and fee cuts. We will use both institutional arrangements and temporary policies to cut taxes and fees, with the focus on reducing the burden on micro, small, and medium-sized enterprises, self-employed individuals, and enterprises in industries in difficulty. Major policies on tax and fee cuts that were introduced earlier and are due to expire by June will be continued till the end of the year, to support market entities through difficulties and help them develop and to stabilize employment. It is estimated that with these measures we will ease the burden on market entities by more than 2.5 trillion yuan for the year.
二是多渠道筹集资金。在特殊时期采取特殊举措，将赤字率从2.8%提高至3.6%以上，财政赤字规模比去年增加1万亿元，积极对冲疫情造成的减收增支影响，稳定并提振市场信心。同时发行抗疫特别国债1万亿元。加大各类结转结存资金盘活使用力度，努力增加可用财力，弥补财政减收增支缺口。
Second, we will collect funds through multiple channels. Special measures are required for special circumstances. We will raise the deficit-to-GDP ratio from 2.8% to above 3.6%. The fiscal deficit will be 1 trillion yuan more than last year, in order to proactively offset the pandemic’s impact on revenue and expenditure, and to stabilize and bolster market confidence. Meanwhile, we will issue covid-19 bonds of 1 trillion yuan. All types of surplus, idle and carryover funds that should be taken back will be withdrawn and reallocated to increase available funds and make up for the gap caused by increased expenditure and decreased revenue.
三是调整优化支出结构。基本民生支出要只增不减，重点领域支出要切实保障，一般性支出要坚决压减，严禁新建政府性楼堂馆所，严禁铺张浪费。中央政府部门带头过紧日子，中央本级支出下降0.2%，其中非急需非刚性支出压减50%以上。地方财政也要大力压减一般性支出，继续压减“三公”经费，严控会议差旅、咨询培训、论坛展会等经费。各类结余、沉淀资金要应收尽收，重新安排。财政资金要大力提质增效，务必精打细算，把钱用在刀刃上。
Third, we will adjust and optimize the composition of fiscal expenditure. Spending on public wellbeing will only be increased and not cut. Spending in key areas will be truly guaranteed, while general expenditures will be firmly cut. Construction of new government buildings and wasteful and excessive spending will be strictly prohibited. Central government departments will take the lead on belt tightening. Central government will achieve spending cuts of 0.2%, of which outlays on non-essential and non-obligatory items will be slashed by over 50%. Local authorities will also need to drastically reduce general expenditure, and continue working to pare down spending on official overseas visits, official vehicles, and official hospitality; strictly rein in expenses on meetings and business trips, consulting and training, and forums and exhibitions. All types of surplus, idle, and carryover funds that should be taken back will be withdrawn and reallocated. We will improve the quality and efficiency of fiscal expenditures, make careful calculations and sound arrangements, and spend money where it will be used to the best effect.
四是缓解地方财政困难。新增加的财政赤字和抗疫特别国债全部安排给地方，要不折不扣用在落实“六保”任务和减税降费等方面。建立特殊转移支付机制，资金直达市县基层，直接惠企利民，主要用于保就业、保基本民生、保市场主体，包括支持减税降费、减租降息、扩大消费和投资等，强化公共财政属性，决不允许截留挪用。
Fourth, we will ease local government budget difficulties. All of the deficit increase and all funds raised from the covid-19 bonds will be given to local governments to be used solely for maintaining security in the six areas and funding tax and fee cuts. A special transfer payment mechanism will be set up to ensure that funds go straight to prefecture and county governments and directly benefit businesses and people. Such funds should be primarily used to ensure employment, meet basic living needs, and protect market entities. This includes support for efforts to cut taxes and fees, reduce rentals and interest on loans, and increase consumption and investment. We will ensure the public nature of government funds is preserved and see that no such funds are allowed to be withheld or diverted to non-designated uses.
五是扩大政府投资规模。抗疫特别国债主要用于地方公共卫生等基础设施建设和抗疫相关支出，并预留部分资金用于地方解决基层特殊困难。安排地方政府新增专项债券3.75万亿元，比去年增加1.6万亿元，有效支持补短板、惠民生、促消费、扩内需。
Fifth, we will expand government investment. The covid-19 bonds will be mainly used for local public health and other infrastructure construction and epidemic response, while some funds will be reserved for local governments to solve special difficulties at the primary level. This year 3.75 trillion yuan of special-purpose bonds will be issued by local governments, a 1.6 trillion yuan increase over last year, to be used to effectively address deficiencies, improve living standards, boost consumer spending, and expand domestic demand.
