In order to promote the strategic adjustment of the economic structure, strengthen the construction of weak links, and promote the sustained and healthy development of the economy, there is an urgent need to further innovate the investment and financing mechanism in key areas such as public ****services, resources and environment, ecological construction, infrastructure, etc., and to fully give full play to social capital, especially private capital, and to positive role. To this end, the following comments.
One, the overall requirements
(a) Guiding ideology. Comprehensively implement the spirit of the 18th CPC National Congress and the Third and Fourth Plenary Sessions of the 18th CPC Central Committee, in accordance with the CPC Central Committee, the State Council decision-making and deployment, so that the market plays a decisive role in resource allocation and better play the role of the government, to break down the monopoly of the industry and the market barriers, and effectively reduce the threshold of access, the establishment of a fair and open and transparent market rules, to create an investment environment of equal rights and equal opportunities and rules, to further encourage social investment, especially private investment, to revitalize the existing stock of capital. Especially private investment, revitalize the stock, make good use of the increment, adjust the structure, make up for the short boards, serve the national productive forces layout, promote the construction of key areas, and increase the effective supply of public **** products.
(ii) Basic principles. The implementation of unified market access, creating equal investment opportunities; innovative investment and operation mechanism, expanding social capital investment channels; optimize the use of government investment in the direction and mode, play a leading role; innovative financing methods, broaden financing channels; improve the price formation mechanism, play the role of price leverage.
Two, innovative ecological and environmental protection investment and operation mechanism
(C) deepen forestry management system reform. Promote the reform of the management system of state-owned forest areas and state-owned forest farms, improve the management system of forest management and logging, and carry out scientific management of forests. Deepen the reform of the collective forest rights system, stabilize the contractual relationship of forest rights, activate the management rights of forest land, and encourage the transfer of forest rights in accordance with the law. Encourage the flow of forest rights in accordance with the law in the forestation of barren mountains and wasteland and the return of farmland to forests. Reduce or waive the tax on the transfer of forest rights, effectively reducing the cost of the transfer.
(D) to promote the diversification of the main body of ecological construction. Under the premise of strict protection of forest resources, encourage social capital to actively participate in ecological construction and protection, support eligible farmers' cooperatives, family farms (forest farms), professional households, forestry enterprises and other new business subjects to invest in ecological construction projects. For social capital to use barren mountains and wasteland for afforestation, under the premise of guaranteeing ecological benefits and complying with the land use control requirements, it is allowed to develop ecological industries such as under-forest economy and forest tourism.
(5) Promoting the marketization of environmental pollution control. In the electric power, iron and steel and other key industries and development zones (industrial parks) pollution management and other areas, vigorously promote third-party management of environmental pollution, through the commissioning of management services, hosting operation services, etc., by the sewage enterprises pay for the purchase of professional environmental services company pollution control and emission reduction services, to improve the industrialization of pollution management and specialization. Steadily promote the government to the community to buy environmental monitoring services. The establishment of key industries third-party pollution control enterprise recommendation system.
(F) actively carry out emissions rights, carbon emissions rights trading pilot. Promote the paid use of sewage rights and trading pilot, the establishment of a system of paid use of sewage rights, regulate the sewage rights trading market, and encourage social capital to participate in pollution reduction and sewage rights trading. Accelerating the adjustment of the sewage fee collection standards for major pollutants and implementing differentiated sewage fee collection policies. Accelerate the trial implementation of the carbon emissions trading system in China, explore the forest carbon sink trading, develop the carbon emissions trading market, encourage and support social investors to participate in the carbon quota trading, through the function of the financial market to discover the price, adjust the interests of different economic subjects, and effectively promote environmental protection and energy conservation and emission reduction.
Three, encourage social capital investment and operation of agricultural and water conservancy projects
(VII) Cultivate diversified agricultural and water conservancy project investment main body. Support farmers' cooperatives, family farms, professional households, agricultural enterprises and other new business subjects to invest in the construction of farmland water conservancy and soil and water conservation facilities. Allow financial subsidies to form small farmland water conservancy and soil and water conservation project assets held by agricultural water cooperative organizations and management. Encourage social capital to participate in the construction and operation of water conservation and water supply major water conservancy projects with a certain level of income in various forms, such as franchising and shareholding. Social capital willing to invest in major water conservancy projects, to actively encourage social capital investment in construction.
(viii) to protect agriculture, water conservancy project investment reasonable returns. Social capital investment in the construction or operation and management of agricultural water conservancy, soil and water conservation facilities and water conservation and water supply of major water conservancy projects, and state-owned, collective investment projects enjoy the same policy treatment, you can get the water supply water charges and other operating income in accordance with the law; to undertake the task of public welfare, the government can be the construction of the project construction investment, repair, maintenance and management of the funds to give appropriate subsidies, and the implementation of preferential policies. Social capital investment in the construction or operation and management of farmland water conservancy facilities, major water conservancy projects, etc., according to law, inheritance, transfer, subletting, mortgage their relevant rights and interests; expropriation, expropriation or occupation, in accordance with the relevant provisions of the state compensation or indemnity.
(ix) through the water rights system reform to attract social capital to participate in the development, utilization and protection of water resources. Accelerate the establishment of the water rights system, cultivate and standardize the water rights trading market, and actively explore various forms of water rights trading and transfer methods, allowing localities to meet new reasonable water demand through water rights trading. Encourage social capital through participation in water conservation and water supply major water conservancy project investment and construction, and other ways to prioritize the acquisition of new water resources use right.
(J) improve the water conservancy project water price formation mechanism. In-depth comprehensive reform of agricultural water prices pilot, and further promote agricultural water conservation. Water conservancy projects for non-agricultural water prices in accordance with the principle of compensating costs, reasonable returns, quality and price, fair burden reasonably formulated, and adjusted in accordance with changes in the cost of water supply and the ability of society to afford, etc., the implementation of the two-part system of water conservancy projects water prices and water prices in the rich and dry seasons. Price adjustment is not in place, the local government can arrange financial funds according to the actual situation, reasonable compensation for operating units.
Four, promote the municipal infrastructure investment and operation of the market
(11) reform of municipal infrastructure construction and operation mode. Promote municipal infrastructure construction and operation of business units to independent accounting, independent management of enterprise management change. Encourage to break the project-based decentralized mode of operation, the implementation of large-scale operation, reduce construction and operating costs, improve investment efficiency. Promote the city and county, townships and village-level sewage collection and treatment, garbage disposal projects by industry "package" investment and operation, and encourage the implementation of urban and rural water supply integration, plant network investment and operation.
(xii) actively promote the participation of social capital in municipal infrastructure construction and operation. Through franchising, investment subsidies, government purchase of services and other ways to encourage social capital investment in urban water supply, heating, gas, sewage and waste disposal, construction waste resource utilization and treatment, urban comprehensive pipeline corridor, parks supporting services, public **** transportation, parking facilities and other municipal infrastructure projects, the government selects the operator in accordance with the law to meet the requirements. The government may use entrusted operation or transfer-operation-transfer (TOT), etc., to transfer completed municipal infrastructure projects to social capital operation and management.
(xiii) Strengthening county infrastructure construction. In accordance with the requirements of the development of new urbanization, the county towns and key towns with the conditions to develop into small and medium-sized cities, support infrastructure construction, and enhance the ability to absorb the transfer of population from agriculture. Select a number of county cities and key towns with industrial bases, characteristic resources and location advantages to implement pilot projects, and increase policy support for the introduction of market mechanisms for municipal infrastructure construction and operation.
(xiv) Improve the municipal infrastructure price mechanism. Accelerate the improvement of municipal infrastructure price formation, adjustment and compensation mechanism, so that operators can obtain reasonable returns. The implementation of upstream and downstream price adjustment linkage mechanism, price adjustment is not in place, the local government can arrange for financial funds according to the actual situation of reasonable compensation for business operations.
V. Reform and Improvement of Transportation Investment and Financing Mechanism
(XV) Accelerate the reform of the railroad investment and financing system. Make good use of the platform of the Railway Development Fund to attract the participation of social capital and expand the scale of the fund. Make full use of the comprehensive development policy of railroad land, to support the development of railroads with development proceeds. In accordance with the direction of marketization, continuously improve the formation mechanism of railroad tariffs. The ownership and operation rights of intercity railroads, municipal (suburban) railroads, resource development railroads and feeder railroads will be liberalized to local governments and social capital. In accordance with the requirements of building a modern enterprise system, to protect the rights and interests of investors, and to promote the introduction of private capital such as Mengxi to Central China, Changchun to the West Bayanhua Railway and other demonstration projects. Encouragement in accordance with the "multi-modal convergence, three-dimensional development, functional integration, saving and intensive" principle, the urban rail transit stations around the vehicle section of the top of the land development, to attract social capital to participate in the construction of urban rail transit.
(xvi) Improve the highway investment and financing model. Establish and improve the government-led, hierarchical responsibility, multiple financing highway investment and financing model, improve the toll road policy, attract social capital investment, multi-channel financing for construction and maintenance funds. Gradually establish an integrated development mechanism for highways and ordinary highways, and promote the sustainable and healthy development of ordinary highways.
(17) Encourage social capital to participate in water transportation, civil aviation infrastructure. Explore the development of "combined navigation and power" and other investment and financing models, according to relevant policies to give investment subsidies, and encourage social capital investment in the construction of navigation and power hubs. Encourage social capital to invest in the construction of ports and inland waterway transportation facilities. Actively attract social capital to participate in the better profitability of hub airports, mainline airports and airport supporting services and facilities, such as investment and construction, to broaden the airport construction funding sources.
VI. Encourage social capital to strengthen investment in energy facilities
(XVIII) Encourage social capital to participate in electric power construction. In doing a good job of ecological environmental protection, resettlement of immigrants and ensure project safety under the premise, through the owner of the bidding and other ways to encourage social capital investment in conventional hydroelectric power stations and pumped storage power stations. On the premise of ensuring that nuclear power holders with nuclear power holding qualifications assume responsibility for nuclear safety, social capital is introduced to participate in nuclear power project investment, and private capital is encouraged to enter the field of nuclear power equipment development and nuclear power services. Encourage social capital to invest in the construction of wind power, biomass and other clean energy projects and back-pressure cogeneration units, to enter the construction of clean and efficient coal power projects, energy saving and emission reduction upgrading of coal-fired power plants in the field.
(xix) Encourage social capital to participate in the construction of power grids. Actively attract social capital investment in the construction of inter-regional power transmission corridors, regional backbone power grid improvement projects and large and medium-sized cities distribution network projects. Hainan networking Ⅱ back to the line and northwestern Yunnan to Guangdong ultra-high-voltage direct current transmission project and other projects as a pilot, the introduction of social capital. Encourage social capital investment in the construction of distributed power grid projects, energy storage devices and electric vehicle charging and switching facilities.
(xx) Encourage social capital to participate in the construction and operation of oil and gas pipeline networks, storage facilities and coal storage and transportation. Support for private enterprises, local state-owned enterprises and other equity participation in the construction of oil and gas pipeline network trunk lines, coastal liquefied natural gas (LNG) receiving station, underground gas storage, urban gas distribution pipeline network and urban gas storage facilities, holding the construction of oil and gas pipeline network branch lines, crude oil and refined oil products commercial reserves. Encourage social capital to participate in the construction of railroad coal transportation trunk lines and coal storage and distribution system. Refining and chemical integration projects in petrochemical bases identified in the national plan are open to social capital.
(xxi) Streamlining the energy price mechanism. Further promote the reform of natural gas prices, in 2015 to achieve the stock of gas and incremental gas price convergence, and gradually liberalize the price of non-residential natural gas gas, the implementation of shale gas, coalbed methane and other unconventional natural gas price market-oriented policies. The natural gas pipeline transportation price policy will be introduced as soon as possible. In accordance with the principle of reasonable cost plus reasonable profit, adjust the online benchmark tariff for coalbed methane power generation and waste heat and pressure power generation in due course. Promote the marketization of natural gas distributed energy cooling, heating and electricity prices. Improve the price policy of renewable energy power generation, study the establishment of basin ladder efficiency compensation mechanism, timely adjustment and improvement of coal-fired generating units environmental tariff policy.
VII. Promoting the diversification of investment in information and civil space infrastructure
(xxii) Encouraging the telecommunications industry to further open up to private capital. Further improve laws and regulations, and revise as soon as possible the categorized catalog of telecommunication services. It will study and introduce specific pilot measures to encourage and guide private capital to invest in broadband access network construction and business operations, and vigorously develop broadband subscribers. Promote private enterprises to carry out pilot work in mobile communications resale business, and promote business innovation and development.
(xxiii) Attracting private capital to increase investment in information infrastructure. Support basic telecommunications enterprises to introduce private strategic investors. Promote the introduction of private capital by China Tower Corporation to realize the development of mixed ownership.
(xxiv) Encourage private capital to participate in the construction of national civil space infrastructure. Improve the policy on civil remote sensing satellite data, strengthen government procurement services, and encourage private capital to develop, launch and operate commercial remote sensing satellites, and provide market-oriented and specialized services. Guide private capital to participate in the construction of satellite navigation ground application systems.
VIII. Encourage social capital to increase investment in social undertakings
(25) Accelerate the reform of the classification of public institutions in social undertakings. Actively promote the pension, culture, tourism, sports and other fields eligible institutions, as well as public hospitals in resource-rich areas eligible medical institutions restructuring, to create conditions for the entry of social capital, and encourage social capital to participate in the reform of public institutions. The eligible state-owned units of training and convalescent institutions into pension institutions.
(xxvi) Encourage social capital to increase investment in social programs. Through sole proprietorship, joint venture, cooperation, joint venture, leasing and other ways to take the franchise, public construction of private, privately-run and other ways to encourage social capital to participate in education, health care, elderly care, sports and fitness, cultural facilities construction. Opinions on encouraging social forces to organize education and promoting the healthy development of private education will be issued as soon as possible. In the preparation of urban master plans, detailed control plans and relevant special plans, all localities are required to coordinate the planning and scientific layout of various types of public ****service facilities. Governments at all levels are gradually expanding the scope of government-purchased services in education, medical care, pension, sports and fitness, culture, etc., with the equal participation of all types of business entities. Qualified types of medical institutions into the scope of medical insurance designated.
(xxvii) Improve the implementation of social enterprise construction and operation of tax incentives. Further improve the implementation of non-profit education, medical care, elderly care, sports and fitness, cultural institutions tax incentives. The construction of non-profit medical and nursing institutions are exempted from the relevant administrative fees, and the construction of for-profit medical and nursing institutions are reduced by half the relevant administrative fees.
(xxviii) Improvement of social utility price management policies. Private education and medical institutions using electricity, water, gas and heat, the implementation of the same price policy as public education and medical institutions. The prices of electricity, water, gas and heat used by elderly institutions shall be implemented in accordance with the prices of residential living categories. Except for the basic services provided by public medical and nursing institutions, which are implemented in accordance with the price policy stipulated by the government, other medical and nursing services are priced independently by the operators. Charges of for-profit private schools are priced independently, and the charging policy of non-profit private schools is determined by local governments in accordance with the market-oriented direction and according to the actual situation in the locality.
Nine, establish and improve the government and social capital cooperation (PPP) mechanism
(29) to promote the government and social capital cooperation (PPP) model. Seriously summarize the experience, strengthen policy guidance, in the public **** services, resources and environment, ecological protection, infrastructure and other areas, actively promote the PPP model, standardize the selection of project partners, the introduction of social capital, and enhance the supply capacity of public **** products. 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 regulatory system of PPP mode to ensure the smooth operation of the project. Encourage the revitalization of stock resources through PPP, the realized funds should be used for the construction of key areas.
(30) standardize the partnership to protect the interests of all parties. Relevant government departments should formulate management methods, release standard contract models as soon as possible, and make detailed provisions on the selection of owners, price management, return methods, service standards, information disclosure, penalties for breach of contract, government takeover, and evaluation and validation of PPP projects, so as to standardize the cooperative relationship. Balance the relationship between the interests of the public and investors, to protect the interests of the public from being jeopardized, as well as the legitimate rights and interests of the operators.
(xxxi) Improve the risk prevention and supervision mechanism. The government and investors should fully demonstrate the policy risks, commercial risks, environmental risks and legal risks that may arise from the PPP project, improve the contract design, and improve the dispute resolution and risk prevention mechanism. Establish an independent, transparent, accountable and professional PPP project supervision system, and form a supervision mechanism involving government regulators, investors, the public, experts and the media***.
(32) Improve the exit mechanism. The government should clarify the exit path of the PPP project with the investors to ensure the continuous and stable operation of the project. After the end of the project cooperation, the government should organize a good takeover, properly handle investment recovery, asset disposal and other matters.
Ten, give full play to the role of government investment to guide and drive
(33) optimize the use of government investment direction. Government investment is mainly invested in public welfare and basic construction. Encourage social capital to participate in the ecological environment, agriculture, forestry and water conservancy, municipal infrastructure, social services and other key areas, government investment can be supported according to the actual situation, giving full play to government investment "four two pounds" to guide and drive the role.
(34) Improve the use of government investment. Under the same conditions, the government investment priority to support the introduction of social capital projects, according to different projects, through investment subsidies, fund injection, guarantee subsidies, loan subsidies, etc., to support social capital to participate in key areas of construction. Urgently formulate government investment to support the management of social investment projects, standardize the behavior of government investment arrangements.
Eleven, innovative financing methods to broaden financing channels
(35) Explore innovative credit services. Support the development of sewage rights, fee rights, collective forest rights, franchise rights, the expected return on the purchase of service agreements, collective land contracting rights pledge loans and other guarantees for innovative types of loan business. Explore the use of project water supply, heat supply, power generation, sewage and garbage treatment, etc., the expected proceeds of pledge loans, allowing the use of the relevant proceeds as a source of repayment. Encourage financial institutions to provide financing support for social undertakings organized by private capital.
(36) Promoting agricultural financial reform. Explore the adoption of credit guarantees and interest rate subsidies, business incentives, risk compensation, expense subsidies, investment funds, as well as mutual credit and agricultural insurance, to enhance the loan financing capacity and risk resilience of farmers' cooperatives, family farms (forest farms), large-scale professional households, and agroforestry enterprises.
(37) Give full play to the active role of policy financial institutions. Within the business scope approved by the state, increase support for public **** services, ecological and environmental protection, infrastructure construction projects. Efforts to provide long-term stable, low-cost financial support for ecological and environmental protection, agriculture, forestry and water conservancy, central and western railroads and highways, urban infrastructure and other major projects.
(xxxviii) Encourage the development of investment funds to support the construction of key areas. Vigorously develop equity investment funds and venture capital funds, encourage private capital to take private placement and other ways to initiate the establishment of the main investment in public **** services, ecological and environmental protection, infrastructure, regional development, strategic emerging industries, advanced manufacturing and other areas of industrial investment funds. The government can use financial funds, including the central budget investment, by subscribing to fund shares and other ways to support.
(39) support key areas of construction projects to carry out equity and debt financing. Vigorously develop debt investment plan, equity investment plan, asset support plan and other financing tools, extend the investment period, and guide the social security funds, insurance funds and other funds for stable returns, long payback period of infrastructure and basic industry projects. Supporting construction projects in key areas to raise investment funds through the bond market by means of corporate bonds, project revenue bonds, corporate bonds and medium-term notes. Promote the securitization of accounts receivable of enterprises engaged in the construction of railroads, highways, airports and other transportation projects. Establishing a standardized debt financing mechanism for local governments, and supporting local governments to issue bonds in accordance with the law for the construction of key areas.
Innovating investment and financing mechanisms in key areas plays an important role in stabilizing growth, promoting reform, adjusting structure and benefiting people's livelihood. All regions and relevant departments should start from the overall situation, further raise awareness, strengthen organizational leadership, improve the working mechanism, and coordinate to promote the innovation of investment and financing mechanism in key areas. Local governments should take into account local realities, and urgently formulate specific implementation rules to ensure that the measures are put into practice. Relevant departments of the State Council should strictly in accordance with the division of labor, and urgently formulate relevant supporting measures to accelerate the construction of key areas, and at the same time to strengthen the publicity and interpretation, so that social capital to understand the mode of participation, mode of operation, profit model, return on investment and other related policies, to further stabilize the market expectations, and fully mobilize the enthusiasm of the social investment, and effectively play a good role in the key role of investment in economic growth. The Development and Reform Commission, in conjunction with the relevant departments to strengthen the supervision and inspection of the implementation of this guidance, major issues reported to the State Council in a timely manner.
Attachment: key policy measures document division of labor program
Detailed State Council 60 full text content
Detailed State Council 60 full text content
State Council
November 16, 2014