Outlook丨Guizhou clarifies the "five rights" to make good use of poverty alleviation assets

On March 11, 2022, tourists watched rape flowers at the "Jinhai Snow Mountain" scenic spot in Panjiang Town, Guiding County, Guizhou Province. In recent years, Guiding County has vigorously promoted the construction of beautiful villages and promoted rural tourism. Photo by Yang Wenbin/This Journal

Since the 18th National Congress of the Communist Party of China, the country has continued to increase investment in poverty alleviation, and a large number of poverty alleviation projects have been implemented in various regions. The large-scale poverty alleviation assets thus formed are not only the accumulation of achievements in poverty alleviation, but also the material basis for rural revitalization and development. The potential should be fully tapped to leverage rural revitalization.

As the province with the largest poverty area, the deepest level of poverty, and the largest number of poor people in the country, Guizhou is the province with the most poverty alleviation assets in the country. In recent years, Guizhou has used the five-power separation reform of "ownership, management rights, income rights, disposal rights, and supervision rights" to explore and improve the efficiency of poverty alleviation assets. It has not only understood the background of poverty alleviation assets, but also clarified rights and responsibilities, and established and improved the long-term management of poverty alleviation project assets. Effective operation management mechanism.

Make it clear that ownership assets have ID cards

“We have conducted a thorough investigation of the poverty alleviation assets formed by the investment of various types of poverty alleviation funds at all levels since the 18th National Congress of the Communist Party of China, and found that the projects involved in the province The capital scale is 409.113 billion yuan, and the assets are 398.979 billion yuan," said He Chengshan, deputy director of the Guizhou Provincial Rural Revitalization Bureau. However, some poverty alleviation assets are currently scattered in various departments, towns and villages, and the ownership of some of them is unclear. "What you want to use cannot be obtained, and what you can use cannot be used."

For example, Qinglong County once used poverty alleviation funds to build about 100,000 square meters of sheep pens. Later, due to technical, market and other reasons, the sheep pens distributed in various towns were idle. "Because neither the town nor the village was an industrial operator at the beginning, they never had the right to use idle poverty alleviation assets such as sheep pens. Some farmers want to rent, but they don't know who to look for," said Cao Yong, mayor of Shasha Town, Qinglong County.

In conjunction with the reform of the rural collective property rights system, Guizhou promotes the classification of qualified poverty alleviation assets for ownership confirmation and registration. Specifically, household-based assets are in principle owned by farmers; public welfare assets must be handed over in a timely manner after the project is completed, and the rights are confirmed and managed according to relevant industry requirements; operating assets are based on the source of funds, scope of benefits, management needs, etc. The ownership should be clarified as far as possible to the individuals and village collective economic organizations who receive the benefits; if it is difficult to identify individual poverty alleviation assets, in principle, it should be clarified to the village collective economic organizations and included in the scope of rural collective asset management, and should be reformed in accordance with the rural collective property rights system. It is required to promote the reform of joint-stock cooperative system.

“Every poverty alleviation asset has an ID card.” Fu Mingyong, chairman of the Qinglong County Political Consultative Conference, said that for poverty alleviation projects that have completed asset confirmation and registration, the county has issued the “Poverty Alleviation Fund Assets” "Property Rights Certificate" clearly clarifies the attributes, nature, category, status, use period, etc. of the assets, so that the subject is clear and the property rights are clear.

"This will mobilize the enthusiasm of ownership entities and encourage them to find ways to revitalize poverty alleviation assets." He Chengshan said.

Clarify management rights and stimulate project vitality

Industrial poverty alleviation is a powerful way to mobilize the endogenous motivation of people in need to get rid of poverty. Facing the unpredictable market tide, some industrial poverty alleviation projects have encountered operational difficulties due to market prospects, technical shortages and other reasons. How to avoid "emphasis on construction and neglect of management and protection" and enhance the vitality of industrial poverty alleviation projects?

In this regard, Guizhou is exploring ways to strengthen follow-up management and relax operating rights. Based on the characteristics of poverty alleviation project assets, we encourage the exploration of multi-form, multi-level, and diversified management and operation models -

For operating assets that are mature, profitable or have development potential, efforts are required to improve marketization and scale , standardization, and branding levels; for operating project assets with operational management difficulties, we encourage the adoption of contracting, trusteeship, leasing, cooperation, etc. to implement the operating entities, determine the operating methods and deadlines, clarify the rights and obligations of all operating parties, and do a good job in risk prevention control.

Assets follow talented people, talented people follow projects, and projects follow the market. In Gaoling Village, Dachang Town, Qinglong County, seven business projects are operated in cooperation with enterprises and large households according to different models. Among them, Polygonum multiflorum planting and processing plants, and three breeding farms operate according to the debt model; one pig breeding project operates according to the leasing model; and one mushroom stick processing plant operates according to the joint venture model. The village’s ledger shows that in 2021, the village will receive 453,000 yuan in dividends and rental income.

Clarify the rights to income and promote overall wealth

How to define the beneficiary group and the scope of use of asset income? In practice, Guizhou continues to improve the income distribution mechanism of operational poverty alleviation assets.

"This requires standardizing the distribution method and protecting the right to income." Liu Rongfan, director of the Foreign Investment Division of the Guizhou Provincial Rural Revitalization Bureau, said that the principle of precise and differentiated support is adhered to, and it is strictly forbidden to simply distribute money and goods to project asset returns. , distribute the income in one cent.

For example, income from operating assets will be mainly used to consolidate and expand the results of poverty alleviation and achieve rural revitalization, and will be distributed according to the current asset management system. The income from assets belonging to the village collective will be distributed by the village committee after performing democratic decision-making, announcements and other relevant procedures in accordance with the process of "village collective proposal, township approval, county-level filing".

At the same time, the distribution of labor income through participating in the construction and development of projects in the village is encouraged; the development of new business entities that are effective in lifting people out of poverty through asset income support is encouraged.

Yao Feng said that the laying hen farm is now unifiedly operated by Yuping County Poverty Alleviation Development Investment Co., Ltd., and the income is divided according to the proportion of capital investment in each township and street. This not only promotes the intensive operation of poverty alleviation assets, exerts the aggregation effect, but also ensures The value-added assets in remote villages and towns are more effective, transforming poverty alleviation assets from decentralized income growth to overall wealth creation.

Clarify disposal rights and revitalize existing assets

During the poverty alleviation period, some poverty alleviation projects were implemented intensively. Some poverty alleviation projects involve multiple systems and departments, and it is necessary to actively track the operation of project funds or the use of poverty alleviation assets to improve project efficiency.

In this regard, Guizhou explores strict approval procedures and standardizes disposal rights. According to the relevant person in charge of the Guizhou Provincial Rural Revitalization Bureau, the disposal of poverty alleviation assets belonging to village collectives is decided by the villagers, subject to approval by the township, and reported to the competent department for approval. The approval results are made public in a timely manner, and the disposal income should be reallocated to consolidate and expand the results of poverty alleviation and realize rural development. Revitalization shall not be allocated to members of village collective economic organizations; for business entities such as individuals or village collective economic organizations that invest in shares or participate in enterprises, the exit methods and disposal methods of equity shall be clarified.

"No unit or individual may dispose of collective and state-owned poverty alleviation project assets at will." Zheng Shiyong, deputy director of the Zheng'an County Finance Bureau, said that poverty alleviation project assets are affected by natural disasters, policy factors, accidents, development plans, If it is necessary to deal with the situation such as reaching the expiry date, strict procedures will be followed for review and approval. For operating assets formed by financial capital investment by operating entities to implement projects, a third party must be hired for assessment during capital verification and liquidation.

In 2016, Xinyang Village, Zima Township, Qinglong County, used 460,000 yuan of poverty alleviation funds to implement a chicken raising project. The introduced cooperative had ineffective stock assets due to poor management. Recently, after asset management offices at the county and township levels conducted inventory and verification, they disposed of them through auctions. The existing assets were revitalized and recycled in a timely manner and invested in rural revitalization.

Clarify the power of supervision and allow funds to operate in the sun

Implementing the responsibilities of the regulatory bodies for long-term operation and management of assets can ensure that capital projects operate in the sun.

In Guizhou, county-level governments perform the main responsibility for the subsequent management of poverty alleviation assets in their counties, and township governments are responsible for strengthening the daily supervision of the subsequent operation of poverty alleviation assets. The village collective effectively assumes the direct supervision responsibility for the poverty alleviation assets that have been transferred to the village. Rural revitalization departments at the provincial and municipal levels are responsible for coordinating and guiding the follow-up management of poverty alleviation assets. Industry authorities at all levels shall perform industry supervision responsibilities in accordance with the division of responsibilities and in accordance with industry field asset management systems and regulations. As a result, a system of hierarchical management, level-by-level responsibility, and unified supervision has been formed.

The relevant person in charge of the Guizhou Provincial Rural Revitalization Bureau introduced that at present, some places have not only clarified the supervision entities such as asset management operation units and industry authorities, but also clarified the supervision bodies of counties (cities/districts), towns (townships), A poverty alleviation asset office was established at the village level to specifically implement supervision rights. At the same time, villagers are guided to participate in the democratic decision-making of asset management and disposal of village-level poverty alleviation projects, and the distribution of income from village-level assets is supervised.

Focusing on “where do poverty alleviation funds come from” and “where do they go”, Qinglong County, Zheng’an County, etc. have established a “two-way tracking” mechanism from horizontal to edge and vertical to bottom. Horizontally, it is based on the nature of funds; vertically, it is based on the direction of funds and tracks the results of the use of each fund. Fu Mingyong said that through project tracking, Qinglong County identified more than 1,500 problems such as incomplete interest linkage mechanisms, inadequate post-management and protection, and idle funds, and designated a dedicated team to track and rectify them.

Since 2018, Yuping County has hired a third-party audit agency to track and audit the project bidding, accounting, and interest linkage that year, and monitor the progress, quality, and effectiveness of the project throughout the entire process. After the project is implemented, a third-party audit agency will be hired to evaluate the poverty alleviation performance, and any poor results will be rectified immediately.