Notice on Displaying the Positive Role of Key Enterprises to Improve and Perfect the Government Regulation and Control System and Mechanism for the Market of Bulk Agricultural Products

关于发挥骨干企业积极作用健全和完善政府对大宗农产品市场调控体系和机制的通知

Promulgating Institution: National Development and Reform Commission, Ministry of Industry and Information Technology, Ministry of Finance, Ministry of Railways, Ministry of Transport, Ministry of Agriculture, Ministry of Commerce, State Administration for Industry and Commerce, General Administration of Quality Supervision, Inspection and Quarantine, State Administration of Grain, All China Federation of Supply and Marketing Cooperatives, Agricultural Development Bank of China

Document Number: Fa Gai Jing Mao [2010] No. 1610

Promulgating Date: 07/21/2010

Effective Date: 07/21/2010

颁布机关: 国家发展和改革委员会; 工业和信息化部; 财政部; 交通运输部; 铁道部; 农业部; 商务部; 国家工商行政管理总局; 国家质量监督检验检疫总局; 国家粮食局; 中华全国供销合作总社; 中国农业发展银行

文      号: 发改经贸[2010]1610号

颁布时间: 07/21/2010

实施时间: 07/21/2010

People's governments of all provinces, autonomous regions and municipalities directly under the Central Government,

Since 1990s, the State has successively liberalized the purchase and sale market and prices of grain and oil, cotton, edible sugar, pork and other bulk agricultural products. With the deepening of market-oriented reforms, diversified operating subjects on the market of agricultural products have enjoyed rapid development. Certain key enterprises with larger scale, higher levels of industrialized operation and sound purchase and sale networks have exerted a fairly large influence on the market, and have played a strong leading and stimulating role towards many small and medium-sized enterprises (SMEs). The appropriate introduction of a certain number of key enterprises as supplement to the current macro-regulation and control system will prevent contradictions resulting from the profit-driven behavior of enterprises with the objectives of government regulation and control from weakening the effect of the latter, and is conducive to giving full play to the positive role of key enterprises in improving and strengthening the existing regulation and control system, and better stabilizing and managing market expectations. In accordance with the instructions given by the leadership of the State Council, relevant State departments have studied and determined the overall idea and programs of implementing this task. Upon approval of the State Council, relevant issues concerning displaying the positive role of key enterprises by all regions to improve and perfect the government regulation and control system and mechanism for bulk agricultural products are hereby notified as follows: 

    各省、自治区、直辖市人民政府:

    上世纪90年代以来,国家陆续放开粮油、棉花、食糖、猪肉等大宗农产品的购销市场和价格。随着市场化改革的深入,农产品市场多元主体得到了较快发展。部分规模较大、产业化经营水平较高、购销网络比较健全的骨干企业,在市场上形成了较大影响力,并对众多中小企业产生了较强带动作用。适当引入一定数量骨干企业作为现行宏观调控体系的补充,可以防止企业的趋利行为与政府调控目标产生矛盾,弱化政府调控的效果;有利于充分发挥骨干企业的积极作用,完善和加强现有调控体系,更好地稳定和管理好市场预期。按照国务院领导批示要求,日前国家有关部门已经研究确定了开展此项工作的总体思路和方案。经国务院批准,现就各地发挥骨干企业积极作用,健全和完善政府对大宗农产品市场调控体系和机制的有关事项通知如下:

1. Establish working mechanisms as soon as possible. All people's governments at the provincial level shall, in accordance with the requirements of this Notice, lose no time in determining the lead department responsible for this task and relevant member entities, study and establish appropriate working mechanisms, specify working responsibilities according to the division of responsibilities among departments, and push forward the solid progress of this task.

       一、尽快建立工作机制。各省级人民政府要按照本通知要求,尽快确定负责此项工作的牵头部门和相关成员单位,研究建立相应的工作机制,按照部门职责分工明确工作责任,扎实推进此项工作的开展。

2. Determine the scope of varieties under market regulation and control. In addition to the five (5) categories of commodities determined by relevant State departments, i. e. grain (including wheat, rice, corn, soybean, etc.), edible vegetable oil, cotton, edible sugar and pork, all regions may, according to their respective production and consumption characteristics and habits, include other bulk agricultural products that have large influence on the life of the residents and the general price level within their respective regions into the scope of varieties under market regulation and control.

       二、确定市场调控的品种范围。除了国家有关部门确定的粮食(包括小麦、稻谷、玉米、大豆等)、食用植物油、棉花、食糖、猪肉五大类商品外,各地可以根据本地区生产、消费的特点和习惯,将对本地区居民生活和物价总水平影响较大的其它大宗农产品纳入市场调控的品种范围。

3. Rationally select certain key enterprises to participate in market regulation and control. Under the premise that there shall be no change to the accountability system of provincial governors and city mayors for the "rice bag" and/or "shopping basket" project and to the macro-regulation and control system and mechanism of relevant varieties, properly select some key enterprises to be included into the regulation and control system and mechanism as a supplementary means for improvement. Make the market leading role of key enterprises serve government regulation and control mainly by economic means, supplemented by legal and/or administrative means. In determining the regulation and control objectives and means, the governments shall consider the normal operating costs and reasonable profits of enterprises, and establish necessary profit compensation mechanisms so that government intention and enterprise interests converge. The convergence shall be made clear by legal and/or administrative means. Key enterprises shall have clear market expectations and be assigned with certain responsibilities for market stabilization so as to reduce irrational market behavior of SMEs and facilitate the realization of market stability. 

The selection of key enterprises shall take into full consideration the purchase and sale characteristics of various commodities and the needs of market regulation and control, including the region an enterprise is in, and the business strength, storage and processing capacity, capacity for linking production with sales, market radiation and share, reputation, etc. of the enterprise. Various governments may give priority to processing and circulation enterprises with some resource advantages, operating enterprises with relatively sound sales networks and large-scale leading enterprises of agricultural industrialization within their respective regions. Standardize market entry conditions, establish mechanisms for entry and exit, and adjust and update the list of enterprises as appropriate. 

       三、合理选择部分骨干企业参与市场调控。在现行米袋子、菜篮子省市长责任制和相关品种宏观调控体系、机制不变的前提下,适当选择部分骨干企业作为补充和完善的手段纳入到调控体系和机制中。主要运用经济手段辅之法律、行政等手段,使骨干企业在市场上的主导作用为政府调控服务。政府在确定调控目标和调控手段时,要考虑企业的正常运营成本与合理利润,建立必要的利益补偿机制,使政府意图和企业利益趋同并用法律、行政方式予以明确。使骨干企业有明确的市场预期和稳定市场的一定责任,减少中小企业盲动,以利于实现市场稳定。

    骨干企业的选择,要充分考虑各类商品的产销特点和调控市场的需要,包括企业所处区域、经营实力、仓储加工能力、产销衔接能力、市场辐射面和占有率、信誉情况等。对在本地区有一定资源优势的加工和流通企业、销售网络比较健全的经营企业和大型农业产业化龙头企业可以优先考虑。要规范准入条件,建立进入退出机制,适时调整更新企业名单。

4. Specify the rights and obligations of key enterprises. In accordance with the principles of "entrustment by the government, market operation, well-defined rights and responsibilities, self-assumption of gains and losses, and appropriate compensation", and according to the needs of market regulation and control, the governments shall, by public bidding, selective bidding or other means, select certain high quality enterprises from the confirmed key enterprises to be responsible for the procurement, processing, storage and transportation, import, sale, emergency supply and other specific regulation and control tasks of grain, edible vegetable oil, cotton, edible sugar and pork on a case-by-case basis. Products acquired or imported by key enterprises upon entrustment shall be put under dynamic management by the enterprises in light of their respective operating situation, as supplementary resources for government regulation and control of the market. The enterprises shall enjoy the gains and bear the losses of the said products entirely on their own. When there is a shortage in supply, the enterprises shall be guided to timely supply the commodities to the market via existing processing channels and/or sales networks. 

Relevant governmental departments shall conclude a formal agreement with the key enterprises undertaking corresponding tasks as entrusted by the governments, so as to specify the rights and obligations of both parties, the liabilities for breach of contract, etc. Entrusting entities shall pay corresponding monetary compensation to key enterprises undertaking specific regulation and control tasks pursuant to the provisions. Entrusting entities shall actively coordinate with relevant departments and entities to help key enterprises resolve the funds and transport capacity needed for the regulation and control tasks undertaken, and shall give priority in ensuring the accomplishment of the tasks. 

       四、明确骨干企业的权利和义务。按照“政府委托、市场运作、权责明晰、自负盈亏、适当补偿”的原则,根据调控市场的需要,政府通过招标、邀标等方式,从确定的骨干企业中优选部分企业,采取一事一议的方式,专项承担粮食、食用植物油、棉花、食糖和猪肉的收购、加工、储运、进口、销售和应急供应等特定调控任务。委托骨干企业收购或进口的产品,作为政府调控市场的补充资源,由企业结合自身经营实行动态管理,自负盈亏,当出现供应紧张时,指导企业通过现有加工渠道、销售网络及时投放市场。

    骨干企业受政府委托承担相应任务,由政府有关部门与企业正式签订协议,明确双方权利、义务及违约责任等。对承担具体调控任务的骨干企业,委托单位要按规定给予相应费用补偿。对骨干企业承担调控任务所需资金或运力,委托单位要积极协调有关部门和单位帮助企业解决,优先予以保障。

5. Strengthen the regulation over key enterprises. Governmental departments shall grasp the operation of key enterprises in a timely manner, establish dynamic monitoring and reporting systems, and require key enterprises to submit information on the purchase and sale, processing, inventory quantity, price, etc. of relevant products on a regular basis (by a ten-day period or by month) to serve as the basis for government regulation and control. A key enterprise that undertakes specific regulation and control tasks shall, in accordance with the agreement concluded by both parties, complete the corresponding tasks up to the mark and as scheduled, compile statistics on the acquisition, processing, import, sales, inventory and supply, etc., of the subject matters determined pursuant to the agreement in a regular manner, report the same to the entrusting entities and relevant departments within the prescribed time period, and be responsible for the authenticity thereof. 

Meanwhile, a supervisory appraisal and reward and punishment mechanism shall be established for key enterprises. Entrusting entities shall strengthen supervision and inspection over key enterprises, carry out random inspection or tour inspection from time to time, and appraise the implementation of government macro-regulation and control tasks by the enterprises. Other relevant governmental departments shall strengthen regulation and supervisory inspection over the operating activities of key enterprises according to their respective duties. 

       五、加强对骨干企业的监管。政府部门要及时掌握骨干企业的经营情况,建立动态监测报告制度,要求骨干企业定期(按旬或按月)报送相关产品购销、加工、库存数量和价格等情况,为政府实施调控提供依据。骨干企业承担特定调控任务,要按照双方签订协议的要求,按时保质保量地完成相应的调控任务;定期统计按协议确定标的的收购、加工、进口、销售、库存及投放等情况,在规定时间内报告委托单位及相关部门,并对其真实性负责。

    同时,要建立对骨干企业的监督考核和奖惩机制。委托单位要加强对骨干企业的监督检查,不定期进行抽查或巡查,对企业执行政府宏观调控任务进行考评。政府其他相关部门要按照各自职责,加强对骨干企业经营活动的监管和监督检查。

6. Actively support the development of key enterprises. Governments at all levels shall lend appropriate policy support to key enterprises included in the regulation and control system for the market of bulk agricultural products so that they grow larger and stronger, thus better serving government regulation and control and promoting the sustainable and healthy development of the production and circulation of agriculture products. Firstly, lend appropriate support to key enterprises in warehousing, logistics and other facility construction, as well as in processing capacity building, technological innovation, epidemic prevention and quarantine treatment, etc; secondly, governments at all levels shall coordinate financial institutions, particularly the Agricultural Development Bank of China to give priority in disbursing loans to key enterprises in carrying out acquisition, implementing merger and reorganization, developing industrialized operation, etc.; thirdly, coordinate departments of railways and departments of transport to treat key enterprises undertaking the tasks as objects under special transport assurance, and accordingly give support of transport capacity. 

Against the background of the continuous deepening of market-oriented reforms of the market of bulk agricultural products, introducing key enterprises into the macro-regulation and control system is a new policy and measure to strengthen government regulation and control, and to ensure the stability of market supply and prices of agricultural products. All regions shall attach great importance to this task, lose no time in studying and formulating specific implementing plans for each variety, and make clear the mode of operation and administration. According to the supply and demand and market conditions of each variety, and following the principle of integrating faraway regions and nearer regions, carry out classified implementation, launch the projects as appropriate, and actively and steadily push forward the work to effectively enhance the capability of regulating and controlling local markets of agricultural products. All regions shall report the implementing progress of this task and the work programs to relevant State departments for record-filing prior to September, 1 in the name of the general office of people's governments of provinces (autonomous regions or municipalities directly under the Central Government).

National Development and Reform Commission 

Ministry of Industry and Information Technology 

Ministry of Finance 

Ministry of Railways 

Ministry of Transport 

Ministry of Agriculture 

Ministry of Commerce 

State Administration for Industry and Commerce 

General Administration of Quality Supervision, Inspection and Quarantine 

State Administration of Grain 

All China Federation of Supply and Marketing Cooperatives 

Agricultural Development Bank of China

July 21, 2010

       六、积极支持骨干企业的发展。为支持纳入大宗农产品市场调控体系的骨干企业做大做强，更好地服务于政府调控，促进农产品生产和流通持续健康发展，各级政府要给予相应政策扶持。一是对骨干企业在仓储、物流等设施建设、加工能力建设、技术改造以及防疫检疫处理等方面，给予适当支持;二是对企业开展收购、实施兼并重组、发展产业化经营等方面，各级政府要协调金融机构特别是农业发展银行优先给予贷款支持;三是要协调铁路、交通运输部门将承担任务骨干企业列为重点运输保障对象，给予运力支持。

    将骨干企业引入宏观调控体系，是在大宗农产品市场化改革不断深化情况下，加强政府调控、确保农产品市场供应和价格基本稳定的新政策、新措施。各地对此要高度重视，抓紧研究制定各个品种的具体实施方案，明确运作方式和管理办法。根据各品种供需和市场形势，按照远近结合的原则，分类实施，择机启动，积极、稳妥地推进工作开展，切实增强调控本地农产品市场的能力。各地落实此项工作的进展情况和工作方案，请在9月1日前以省（区、市）政府办公厅名义报国家有关部门备案。

    国家发展改革委

    工业和信息化部

    财政部

    铁道部

    交通运输部

    农业部

    商务部

    国家工商总局

    国家质检总局

    国家粮食局

    供销合作总社

    中国农业发展银行

    二〇一〇年七月二十一日