Opinions of the Ministry of Finance on How Local Finance Departments Can Properly Administer the Finance Guarantee Business

财政部关于地方财政部门积极做好融资性担保业务相关管理工作的意见

Promulgating Institution: Ministry of Finance

Document Number: Cai Jin [2010] No. 23

Promulgating Date: 03/24/2010

Effective Date:03/24/2010

颁布机关: 财政部

文      号: 财金[2010]23号

颁布时间: 03/24/2010

实施时间: 03/24/2010

To the finance departments (bureaus) of all provinces, autonomous regions, municipalities directly under the Central Government and specially designated cities in the State plan:

The healthy development of a finance guarantee system plays a positive role in alleviating the finance and guarantee difficulties for small and medium enterprises (SMEs) and "agriculture, rural areas and farmers", and in promoting the steady and rapid development of economy. To better perform the finance functions, support and promote the normal development of the finance guarantee business and further intensify efforts to support weak sectors of the economy and society, we hereby present the following opinions:

    各省、自治区、直辖市、计划单列市财政厅(局):

    融资性担保体系的健康发展对缓解中小企业和“三农”融资难担保难问题,促进经济平稳较快发展起着积极的推动作用。为更好地履行财政职能,支持和促进融资性担保业务规范发展,进一步加大对经济社会薄弱环节的支持,现提出以下意见:

1. To make clear the goals and tasks and actively promote the healthy development of the finance guarantee industry

(1) The major goals of the local finance departments at all levels are implementing the Notice of the General Office of the State Council on Further Clarifying the Regulatory Responsibilities regarding the Finance Guarantee Businesses (Guo Ban Fa [2009] No. 7), the Tentative Administrative Measures for Finance Guarantee Companies (CBRC, NDRC MIIT, MOF, MOFCOM, PBC, SAIC Decree [2010] No. 3) and other documents, promoting the establishment of a finance guarantee service system with complete functions, integrated services, compliant operations and effective regulation.

(2) The main tasks of the local finance departments at all levels are to participate in the construction of local finance guarantee systems; strengthen the financial supervision over finance guarantee companies, enhance the standardization level of financial management, prevent and control local financial risks; improve the regulatory system and mechanism for the finance guarantee industry; strengthen the administration of government-funded financing guarantee companies, and ensure the effective operation of state-owned assets.

(3) The local finance departments at all levels shall pay close attention to the actualities and make great efforts to solve the bottleneck issue that hinders the healthy development of the finance guarantee industry within their respective jurisdictions by upholding the following principles: combining government guidance with market-oriented operation, combining development support with risk prevention, combining lawful operation with heightened regulation, combining guarantee offering with credit enhancing, and combining business innovation with compliant operation.

       一、明确目标和任务，积极推动融资性担保行业健康发展

   （一）地方各级财政部门的主要目标是，贯彻落实《国务院办公厅关于进一步明确融资性担保业务监管职责的通知》（国办发[2009]7号）、《融资性担保公司管理暂行办法》（银监会等7部委令2010年第3号）等文件精神，推动建立功能完善、服务全面、运作规范、监管有效的融资性担保服务体系。

    （二）地方各级财政部门承担的主要任务是，参与地方融资性担保体系建设;加强融资性担保公司财务监督，提高财务管理规范性，防范和化解地方金融风险;完善融资性担保行业监管制度体系;加强对政府出资融资性担保公司的管理，确保国有资产高效运作等。

    （三）地方各级财政部门要密切联系实际，坚持政府引导与市场化运作相结合，支持发展与防范风险相结合，依法经营与加强监管相结合，开展担保与提升信用相结合，业务创新与规范经营相结合的原则，着力解决制约本辖区融资性担保行业健康发展的瓶颈问题。

2. To fulfill the responsibilities of macroeconomic management and actively participate in the construction of local finance guarantee system 

(4) The local finance departments at all levels shall formulate financial support policies that can facilitate the healthy development of the finance guarantee business and alleviate the finance guarantee difficulties for SMEs and "agriculture, rural areas and farmers", according to the specific local conditions and based on the economic and social development level and financial status in their jurisdictions.

(5) The local finance departments at all levels shall effectively implement the following preferential financial and tax policies for qualified finance guarantee companies: business tax exemption, withdrawing of reserves, pre-tax deduction of compensatory damages, and others. Multiple means such as capital injection, risk compensation, rewards based on appraisal shall be used to enhance and improve the service capability of finance guarantee companies. 

(6) The local finance departments at all levels shall focus on improving the economic and social effects of preferential financial and tax policies, establish a business-oriented policy supporting system, attach importance to the fairness, openness, justness of policies, lay emphasis on supporting the development of finance guarantee companies with sound financials and regulated operations, and establish a healthy development mechanism which supports the superior and eliminates the inferior.

       二、履行宏观经济管理职责，积极参与地方融资性担保体系建设

   （四）地方各级财政部门要结合本辖区经济社会发展水平和财力状况，因地制宜制定促进本辖区融资性担保业务健康发展、缓解中小企业和“三农”融资担保难的财政支持政策。

    （五）地方各级财政部门要落实好对符合条件的融资性担保公司免征营业税、准备金提取和代偿损失税前扣除等财税优惠政策。综合运用资本注入、风险补偿和考核奖励等多种方式，提高和改善融资性担保公司的服务能力。

    （六）地方各级财政部门要着力提高财税扶持政策的经济和社会效应，建立以业务为导向的政策扶持体系，注重政策的公平、公开、公正性，重点扶持财务健全、运作规范的融资性担保公司发展，建立扶优劣汰的良性发展机制。

3. To strengthen the financial supervision of finance guarantee companies, and prevent and defuse local financial risks

(7) The local finance departments at all levels shall urge finance guarantee companies to seriously implement the Financial Rules for Financial Enterprises (MOF Order No. 42), the Measures for Accounting Practice of Guarantee Agencies (Cai Kuai [2005] No. 17) and other relevant financial management systems, effectively improve the compliance of finance guarantee companies in terms of financial operation.

(8) The local finance departments at all levels shall guide and urge finance guarantee companies to establish complete business operation mechanism, financial management system and financial risk control system. They shall formulate measures for the financial supervision of finance guarantee companies in line with the actual situation of their respective jurisdictions after research. They shall see to it that finance guarantee companies are subject to external audit and asset evaluation.

(9) The local finance departments at all levels shall establish financial information management systems and performance appraisal systems for finance guarantee companies, guide and supervise finance guarantee companies to regularly submit the financial and accounting reports to the finance departments and conduct appraisal of financing guarantee companies in terms of asset reorganization status, solvency, asset quality, profitability, social contributions, etc.

       三、加强融资性担保公司财务监督，防范化解地方金融风险

   （七）地方各级财政部门要督促融资性担保公司认真执行《金融企业财务规则》（财政部令第42号）、《担保机构会计核算办法》（财会[2005]17号）等相关财务管理制度，切实提高融资性担保公司财务运作的合规性。

    （八）地方各级财政部门要指导督促融资性担保公司建立完善的业务运行机制、财务管理制度和财务风险控制体系。研究制定符合本辖区实际情况的融资性担保公司财务监督实施办法。监督融资性担保公司接受社会审计和资产评估。

    （九）地方各级财政部门要建立融资性担保公司财务信息管理体系和绩效考核指标体系，指导并监督融资性担保公司定期向财政部门报送财务会计报告，对融资性担保公司资产重组状况、偿付能力状况、资产质量状况、盈利状况和社会贡献等进行评价。

4. To improve the regulatory system for the finance guarantee industry and promote the healthy development of the finance guarantee industry

(10) The local finance departments responsible for regulating the finance guarantee companies within their respective jurisdictions (hereinafter referred to as the "Local Finance Regulatory Departments") shall seriously implement the Tentative Administrative Measures for Finance Guarantee Companies by strictly complying with the relevant requirements of the Inter-Ministry Joint Conference on Regulation of Finance Guarantee Business under the State Council (hereinafter referred to as the "Joint Conference") and the provincial people's governments, and ensure smooth regulation of finance guarantee companies within their respective jurisdictions.

(11) The Local Finance Regulatory Departments shall establish and improve the basic information management system and risk monitoring system for finance guarantee companies and conduct continuous monitoring of risk status; establish the emergency response mechanism for risks of finance guarantee companies, formulate pre-prepared plans for emergencies, confirm the departments in charge of handling emergencies and their responsibilities, measures and procedures for handling emergencies.

(12) The Local Finance Regulatory Departments shall assist the provincial people's governments to formulate policies and measures that can facilitate the healthy development of the finance guarantee business and alleviate the finance guarantee difficulties for SMEs and "agriculture, rural areas and farmers" and guide finance guarantee companies in their efforts to explore and establish the business operation model in compliance with the State industrial policies and market laws.

(13) The Local Finance Regulatory Departments shall support the establishment and improvement of the credit rating system and credit management system of finance guarantee companies in their respective jurisdictions, and push forward the establishment of an information sharing mechanism between financial institutions in the banking sector and finance guarantee companies. They shall encourage finance guarantee companies to carry out cooperation on sub-guarantee, joint guarantee and re-guarantee businesses with one another.

(14) The Local Finance Regulatory Departments shall distinguish governmental responsibilities from corporate responsibilities, establish and improve a scientific and standardized regulatory examining mechanism, clearly define regulatory responsibilities, control finance guarantee risks and prevent them from turning into fiscal risks.

       四、完善融资性担保行业监管制度体系，促进融资性担保行业健康发展

   （十）承担本辖区融资性担保公司监管职责的地方财政部门（以下简称地方财政监管部门），要严格按照国务院融资性担保业务监管部际联席会议（以下简称联席会议）和省级人民政府的有关要求，认真执行《融资性担保公司管理暂行办法》，做好本辖区内融资性担保公司的各项监管工作。

    （十一）地方财政监管部门要建立健全融资性担保公司的基础信息管理体系和风险监管制度，对风险状况进行持续监测。建立融资性担保公司风险应急机制，制定突发事件处理预案，明确处置机构及其职责、处置措施和处置程序。

    （十二）地方财政监管部门要协助省级人民政府制定促进本辖区融资性担保业务健康发展、缓解中小企业和“三农”融资难的政策措施，引导融资性担保公司探索建立符合国家产业政策和市场规律的商业经营模式。

    （十三）地方财政监管部门要支持建立健全本地区融资性担保公司的信用评级和征信管理体系，推动建立银行业金融机构与融资性担保公司之间的信息共享机制。鼓励融资性担保公司相互开展分保、联保和再担保等业务合作。

    （十四）地方财政监管部门要分清政府与企业责任，建立健全科学规范的监管考核机制，清晰界定监管责任，防止和控制融资性担保风险转化为财政风险。

5. To strengthen the business guidance for government-funded finance guarantee companies and ensure effective operation of state-owned assets

(15) The local finance departments at all levels shall, on the principles of regional economy, reasonable layout and highlighting key points, and shall integrate government-funded finance guarantee companies at the proper level, so as to drive the regulated, healthy and orderly development of the finance guarantee industry. They shall encourage government-funded finance guarantee companies to carry out the re-guarantee business if the conditions allow.

(16) The local finance departments at all levels shall strengthen the asset management of government-funded finance guarantee companies. They shall strictly implement the relevant ownership registration transfer system, establish and improve the performance appraisal mechanism for government-funded finance guarantee companies, strengthen the management of enterprise pension and senior management's compensation, and make better use of governmental funds in a scientific, precise and efficient way.

(17) The finance guarantee companies directly-funded by the finance departments shall, according to the principles of government guidance, market-orientated operation and enterprise-like management, establish and improve the modern enterprise system, improve the legal person governance structure and realize the following goal: enterprises operate independently, and improve and develop themselves independently and assume sole responsibility for their profits and losses.

       五、加强对政府出资融资性担保公司业务指导，确保国有资产高效运作

   （十五）地方各级财政部门要按照区域经济、布局合理、突出重点的原则，对政府出资融资性担保公司进行适度整合，带动本辖区融资性担保行业规范、健康、有序发展。鼓励有条件的政府出资融资性担保公司开展再担保业务。

    （十六）地方各级财政部门要加强政府出资融资性担保公司的资产管理。严格执行相关产权登记转让制度。建立健全政府出资融资性担保公司绩效考核机制。加强企业年金和高管人员薪酬管理。提高政府资金使用的科学化、精细化水平和效益。

    （十七）财政部门直接出资的融资性担保公司，要按照政府引导、市场化运作、企业化管理的原则，建立健全现代企业制度，完善法人治理结构，实现企业自主经营、自负盈亏、自我完善、自我发展。

6. To strengthen communication and coordination, and create a good environment for developing the finance guarantee industry

(18) The local finance departments at all levels shall strengthen the communication and coordination with other departments in charge of the finance guarantee business. They shall actively promote the standardization and electronization of the registration of articles under collateral/lien and registration disposal and reduce the operating costs of finance guarantee companies. They shall encourage financial institutions and finance guarantee companies to carry out cooperation on the principles of equality, voluntariness and fairness.

(19) The provincial-level finance departments shall conscientiously ensure the smooth administration of the finance guarantee business in their respective provinces (autonomous regions, municipalities directly under the Central Government or specially designated cities in the State plan). They shall offer funding support and build teams more aggressively, and effectively improve professional capabilities of financial cadres by providing sufficient staff and good training. They shall fully mobilize their staff to strengthen the system and mechanism construction, and formulate detailed work plans through taking into account the actualities of their respective jurisdictions to better support the development of SMEs and "agriculture, rural areas and farmers".

Ministry of Finance

March 24, 2010

       六、加强沟通协调，营造良好的融资性担保行业发展环境

   （十八）地方各级财政部门要加强与融资性担保业务其他管理部门的沟通协调。积极推进抵（质）押物登记、处置登记的标准化和电子化，降低融资性担保公司运营成本。鼓励金融机构与融资性担保公司按照平等、自愿、公平的原则进行合作。

    （十九）省级财政部门要认真做好本省（自治区、直辖市、计划单列市）融资性担保业务相关管理工作。加大经费保障和队伍建设力度，配备足够人员，做好培训工作，切实提高财政干部的业务能力。充分发挥工作主动性，加强制度和机制建设，结合本辖区实际情况，制定详细的工作规划，更好地支持中小企业和“三农”发展。

    财政部

    二○一○年三月二十四日