Guiding opinions on promoting the reform of public institutions by classification

Zhongfa [2011] No.5

(201123 March)

In order to fully implement the spirit of the Seventeenth National Congress of the Communist Party of China and the Second, Third, Fourth and Fifth Plenary Sessions of the Seventeenth Central Committee, promote the better and faster development of public welfare undertakings, and continuously meet the people's growing demand for public welfare services, we now put forward the following opinions on promoting the reform of public institutions by classification.

First, the importance and urgency of reform.

1. Public institutions are the main carrier of providing public welfare services in economic and social development and an important force in China's socialist modernization. Since the reform and opening up, especially since the 16th National Congress of the Communist Party of China, all relevant departments in various regions have actively explored the reform of public institutions, constantly innovated the institutional mechanisms of public institutions, and steadily promoted the system reform of education, science and technology, culture, health and other industries, which has accumulated useful experience and achieved remarkable results, laying a foundation for further reform. The total amount of public welfare services provided by public institutions has been expanding, and the service level has been gradually improved, which has played an important role in promoting economic and social development and improving people's lives.

2. At present, China is in a critical period of building a well-off society in an all-round way, and the task of accelerating the development of social undertakings and meeting the needs of the people for public welfare services is even more arduous. Facing the new situation and new requirements, the development of social undertakings in China is relatively backward, the functions of some institutions are unclear, the government and enterprises are not separated, and the mechanism is not active; The total supply of public welfare services is insufficient, the supply mode is single, the resource allocation is unreasonable, and the quality and efficiency are not high; Policies and measures to support public welfare services are not perfect, and supervision and management are weak. These problems have affected the healthy development of public welfare undertakings and urgently need to be solved by promoting the reform of public institutions through classification.

3. Promoting the reform of public institutions by classification is an inevitable requirement for thoroughly implementing Scientific Outlook on Development and building a harmonious socialist society, an important measure to promote the transformation of government functions and build a service-oriented government, and an objective need to improve the public service level of public institutions and accelerate the development of various social undertakings. From the overall height of reform, opening up and socialist modernization, we should fully understand the great significance of promoting the reform of public institutions by classification, earnestly enhance our sense of responsibility and urgency, and unswervingly push this reform deeper.

Second, the guiding ideology, basic principles and overall objectives of the reform

4. Guiding ideology. Hold high the great banner of Socialism with Chinese characteristics, take Deng Xiaoping Theory and Theory of Three Represents as the guidance, thoroughly implement Scientific Outlook on Development, and further enhance the vitality of public institutions in accordance with the requirements of separating government affairs from enterprise management, based on scientific classification, with deepening the reform of institutional mechanisms as the core, and continuously meet the needs of the people and economic and social development for public welfare services.

5. Basic principles. Adhere to people-oriented, and take improving the level of public services and meeting the needs of the people as the starting point and the end result; Adhere to classified guidance and implement reform and management according to the characteristics of different types of institutions; Persist in pioneering and innovating, break down the institutional and institutional obstacles that affect the development of public welfare undertakings, and encourage various forms of exploration and practice; Adhere to development, give full play to the role of government-led, social forces' participation and market mechanism, and realize the diversification of public service providers and methods; Adhere to overall planning, give full play to the enthusiasm of the central and local governments, pay attention to the connection with the reform of industry system and government institutions, and properly handle the relationship between reform, development and stability.

6. Overall objectives and phased objectives. By 2020, a management system and operating mechanism with clear functions, perfect governance, efficient operation and strong supervision will be established, and a public service system with China characteristics will be formed with priority to basic services, appropriate supply level, reasonable layout and structure, and fair and just services. In the next five years, the classification of public institutions will be completed on the basis of clean-up and standardization, the reform of public institutions that undertake administrative functions and engage in production and business activities will be basically completed, and public institutions engaged in public welfare services will make significant progress in personnel management, income distribution, social insurance, fiscal and taxation policies and institutional establishment, make major breakthroughs in separating management from office and improving governance structure, further optimize the institutional environment for social forces to set up public welfare undertakings, and lay a solid foundation for realizing the overall goal of reform.

Third, scientifically classify public institutions.

7. Clean up and standardize existing institutions. If it is not established as required or the original specific task has been completed, it shall be revoked. If the layout structure is unreasonable, the settings are too scattered, the tasks are seriously insufficient or the responsibilities are similar, it should be integrated.

8. Classify existing institutions. On the basis of cleaning up the norms, the existing institutions are divided into three categories according to their social functions: undertaking administrative functions, engaging in production and business activities and engaging in public welfare services. To undertake administrative functions, gradually transfer their administrative functions to administrative institutions or to administrative institutions; Engaged in production and business activities, and gradually transformed into enterprises; Those who engage in public welfare services will continue to remain in the sequence of public institutions and strengthen their public welfare attributes.

In the future, the establishment of institutions undertaking administrative functions and institutions engaged in production and business activities will no longer be examined and approved.

9. Subdivide institutions engaged in public welfare services. According to the responsibilities, tasks, service targets and resource allocation methods, institutions engaged in public welfare services are divided into two categories: those who undertake basic public welfare services such as compulsory education at the grass-roots level, basic scientific research, public culture, public health and basic medical services, and those who cannot or should not allocate resources by the market, are classified as public welfare; Undertaking public welfare services such as higher education and non-profit medical care that can be partially allocated by the market is classified as public welfare category II. Specific by the local combined with practical research to determine.

Fourth, promote the institutional reform that undertakes administrative functions.

10. Strictly determine the standards and scope. According to the relevant laws and regulations of the state and the relevant policies and regulations of the central government, institutions that undertake administrative functions are identified in strict accordance with whether they mainly perform administrative decision-making, administrative execution, administrative supervision and other functions.

1 1. Implement the reform according to different situations. Combine the reform of administrative management system with the reform of government institutions, especially explore the implementation of the multi-department system with organic unified functions, and promote the reform of institutions that undertake administrative functions. It is not allowed to break through the quota and total staffing of government institutions, mainly through the reform of administrative management system and government institutions to gradually solve the vacancy. For some institutions that undertake administrative functions, we should carefully sort out the functions and assign the functions belonging to the government to relevant administrative agencies; After the adjustment of functions, it is necessary to re-define the responsibilities of public institutions and delimit categories. Those with insufficient tasks should be revoked or merged into other public institutions. Institutions that fully undertake administrative functions can be adjusted to internal organs of relevant administrative organs. If it is really necessary to set up an administrative agency separately, it shall be set up in accordance with the principle of streamlining efficiency. Institutions that have been determined to undertake administrative functions but have not been adjusted in place will continue to perform their duties in accordance with the existing laws, regulations and policies during the transition period, and the use of institutional establishment will only decrease rather than increase, and personnel, finance and social insurance will be managed in accordance with the current national policies and regulations.

Five, promote the reform of institutions engaged in production and business activities.

12. Promote enterprise restructuring. Conscientiously formulate the work plan for the transformation of institutions engaged in production and business activities into enterprises, conduct asset inventory, financial audit and asset evaluation in accordance with relevant regulations, verify creditor's rights and debts, define and verify assets, and the financial department at the same level shall verify the state capital according to law. The transformation unit shall cancel the legal person of the institution, cancel the establishment of the institution, handle the property right registration of state-owned assets and industrial and commercial registration, sign labor contracts with employees according to law, and establish or continue the social insurance relationship. After the transformation of public institutions into enterprises, we should deepen internal reform, change management mechanism and gradually decouple from the original administrative department according to the principle of separating government from enterprises and separating government from capital. Unless otherwise stipulated by the state, the state-owned assets shall be the responsibility of the institution that performs the duties of the investor of state-owned assets.

13. Improve the transition policy. In order to smoothly promote the restructuring work, a transition period can be given, usually five years. During the transition period, preferential policies such as appropriately retaining the original tax will be given to the transformed units, and the original normal business expenses will continue to be allocated. In terms of retirement benefits, those who have retired before the restructuring, the retirement benefits standards stipulated by the original state remain unchanged, and the payment methods and benefits are adjusted according to relevant state regulations; For those who participated in the work before the transformation and retired after the transformation, the basic pension shall be calculated and adjusted in accordance with the relevant provisions of the state to ensure the smooth convergence of the treatment level of retirees. In terms of medical security, retirees continue to implement existing measures, and the required funds are solved according to the original channels; Retirees before the transformation will continue to enjoy basic medical insurance and supplementary medical insurance after the transformation. Conditional transformation units can establish supplementary medical insurance and enterprise annuity for employees in accordance with relevant regulations. It is necessary to further improve the service management of retirees.

Sixth, promote the reform of public service institutions.

14. Clarify the purpose of the reform. Strengthen the public welfare nature of public institutions, further rationalize the system, improve the mechanism and improve the system, fully mobilize the enthusiasm, initiative and creativity of staff, truly stimulate the vitality and vitality of public institutions, continuously improve the level and efficiency of public welfare services, promote the vigorous development of public welfare undertakings, and effectively provide more high-quality and efficient public welfare services for the people.

15. Reform the management system. Separate government from enterprise, and straighten out the relationship between government and institutions. Administrative departments should speed up the transformation of functions, innovate management methods, reduce micro-management and direct management of institutions, strengthen the responsibilities of formulating policies and regulations, industry planning, standards and norms, supervision and guidance, and further implement the autonomy of legal persons in institutions. For institutions that provide public welfare services to the society, actively explore effective forms of separation of management and operation, and gradually abolish administrative levels. Different types of institutions are managed by different institutions, scientifically formulate institutional standards, reasonably control the total amount, focus on optimizing the structure, establish a dynamic adjustment mechanism, and strengthen supervision and management.

16. Establish and improve the corporate governance structure. Institutions that provide public welfare services to the society should explore the establishment of various forms of governance structures such as boards of directors and management committees, improve decision-making, implementation and supervision mechanisms, improve operational efficiency, and ensure the realization of public welfare goals. Institutions that are not suitable for establishing corporate governance structure should continue to improve the current management model.

17. deepen the reform of the personnel system. With reforming and invigorating the employment system as the core, focusing on improving the employment system and post management system, we will establish a personnel management system of public institutions with clear rights and responsibilities, scientific classification, flexible mechanism and strong supervision. Accelerate the reform of the professional title system. Classified personnel management shall be implemented for different types of institutions, posts shall be set according to the establishment management method, and open recruitment, competitive appointment, post employment and contract management shall be implemented.

18. Deepen the reform of the income distribution system. Focus on improving the incentive and restraint mechanism of wage distribution, and improve the staff income distribution system that conforms to the characteristics of public institutions and reflects the requirements of post performance and classified management. We will further improve the implementation of performance pay in compulsory education schools, public health and primary medical and health institutions in combination with standardizing subsidies for public institutions; For other institutions, performance pay shall be implemented in accordance with the principles of classified guidance, step-by-step implementation, local conditions and steady and prudent advancement. According to the reform process, all localities and departments should explore different performance pay management methods for different types of institutions and implement them step by step. Improve the normal wage adjustment mechanism of public institutions.

19. Promote the reform of the social insurance system. We will improve the social insurance policies for institutions and their staff to participate in basic old-age care, basic medical care, unemployment and work-related injuries, and gradually establish a social insurance system that is independent of units, with multiple sources of funds, multiple levels of protection and socialized management services. The basic old-age insurance for staff in public institutions is shared by the society as a whole and individuals, and all individual contributions are credited to personal accounts. The old-age insurance fund shall be established separately, and the provincial overall planning shall be implemented, and the basic pension shall be socialized. The implementation of "the old way for the elderly, the new system for newcomers, and the gradual transition of China people" will properly ensure the smooth transition and reasonable convergence of pension benefits for retirees who participated in the work before the reform and after the reform, and maintain the treatment level stipulated by the state. Establish an occupational annuity system for staff in public institutions. Consider the pension benefits of retirees in enterprises, institutions and institutions as a whole.

20. Strengthen the supervision of public institutions. Establish a performance evaluation system for public institutions, and the evaluation results will serve as an important basis for determining the budget, rewards and punishments for responsible persons and income distribution. Strengthen audit supervision and public opinion supervision. Institutions that provide public welfare services to the society shall establish an information disclosure system, important matters and annual reports shall be made public to the society, and major public welfare services involving the vital interests of the people shall be publicized and heard.

2 1. Comprehensively strengthen Party building in public institutions. In accordance with party constitution and relevant regulations, we should adjust the Party's organizational structure in time, straighten out the subordinate relationship, select and strengthen the leading bodies of Party organizations, strengthen the education, management and service for party member, do a good job in ideological and political work, promote the construction of spiritual civilization, lead the work of mass organizations such as trade unions and the Communist Youth League, give full play to the leading or political core role of Party organizations in promoting the development of the cause and accomplishing the central tasks of the unit, and ensure the implementation of the Party's basic line, principles and policies in public institutions.

Seven, build a new pattern of public services

22. Vigorously develop public services. Adapt to economic and social development and the needs of the people, constantly expand the field of public services, increase the variety of public services, and expand the total supply of public services. Give play to the leading role of the government, guide social forces to participate extensively, introduce market competition mechanism, fully mobilize the enthusiasm of all parties, and continuously enhance the vitality of public welfare undertakings. Through reform, a new pattern of public welfare services with diversified supply subjects and methods will be formed, and efforts will be made to provide broad coverage and multi-level public welfare services for the people.

23. Strengthen government responsibility. In accordance with the requirements of gradually realizing the equalization of basic public services, priority should be given to the development of public services directly related to the basic needs of the people, national security and social stability, and the fairness and justice of public services should be promoted. Accelerate the development of public welfare undertakings in rural areas, underdeveloped areas and ethnic minority areas, narrow the gap between urban and rural areas and regions, and effectively meet the needs of farmers and urban low-income groups for public welfare services such as medical care, education and culture. Optimize the allocation of public service resources, rationally plan the layout, scientifically set up public institutions, break the boundaries of compartmentalization and administrative divisions, and promote resource sharing. Innovate the way of providing public welfare services, improve the mechanism of purchasing services, and improve the quality and efficiency of services.

24 encourage social forces to set up public welfare undertakings. Improve relevant policies, relax access areas, promote fair access, and encourage social forces to enter the field of public welfare undertakings according to law. For social forces to set up public welfare undertakings, we should treat them fairly with institutions in terms of establishment conditions, qualification determination, professional qualification and title evaluation, tax policy and government purchase of services, strengthen supervision and guide their healthy development. We will improve and implement preferential tax policies and encourage enterprises, social organizations and individual citizens to donate to public welfare undertakings. Vigorously advocate and develop voluntary service.

25. Give full play to the role of the market mechanism. Improve support policies, give full play to the positive role of the market in allocating resources in public welfare undertakings, create a good environment for social capital investment, promote the accelerated development of related industries, and meet the multi-level and diversified service needs of the people.

Eight, improve the financial policy to support the development of public welfare undertakings.

26 increase financial support for the development of public welfare undertakings. Accelerate the establishment and improvement of the public finance system, adjust the expenditure structure, increase investment, and strive to build a long-term mechanism for financial support for the development of public welfare undertakings. Formulate and improve financial policies to support social forces to set up public welfare undertakings, and form an investment mechanism for raising funds through multiple channels to develop public welfare undertakings. Evaluate the performance of the use of financial funds in institutions, strictly manage funds, and improve the efficiency of use.

27. Reform and improve financial support methods. In accordance with the national policy and the principle of determining fees by events, combined with the specific characteristics and financial situation of different institutions, we will implement different financial support methods for different types of institutions, rationally set standards, implement dynamic adjustment, improve the supervision system, and give full play to the benefits of financial funds. For public welfare, according to the needs of normal business, give financial security; For the second type of public welfare, according to the financial revenue and expenditure, the government gives financial subsidies and supports them through the way of government purchasing services.

28. Promote the reform of budget management, government procurement and state-owned assets management. Study and establish a standard system for asset allocation in public institutions, promote the organic combination of asset management and budgeting, strengthen the management and implementation of government procurement budgets in public institutions, and standardize the implementation of government procurement operations. Strengthen the management of administrative fees, and strictly examine and approve the fees and standards. Establish and improve the financial accounting and state-owned assets management system of public institutions, strengthen financial supervision, and ensure the standardized, safe and effective use of financial funds and state-owned assets.

Nine, seriously organize the implementation work.

29. Strengthen leadership. Promoting the reform of public institutions by classification is related to the overall situation of economic and social development. This is an extensive and profound reform, and the task is complex and arduous. All regions and departments should attach great importance to it, strengthen their confidence, organize carefully, overcome difficulties and ensure the smooth progress of the reform. In order to strengthen the leadership of the reform work, the inter-ministerial joint meeting system of promoting the reform of public institutions by central classification is established, which is responsible for exchanging the reform situation, studying the problems and putting forward work suggestions. , the specific work shall be undertaken by the Central Bureau. Education, science and technology, culture, health, press and publication departments should continue to promote the reform of the industry system in accordance with the existing leadership system and policies. The central and state organs are responsible for organizing their subordinate institutions to carry out reforms. The Central Organizing Committee, the Ministry of Finance, Ministry of Human Resources and Social Security and other departments should carry out their respective duties, cooperate closely and guide relevant work. Party committees and governments of all provinces (autonomous regions and municipalities) should take overall responsibility for the reform in their own regions, set up leading groups, improve the working mechanism, formulate implementation opinions based on actual research, and do a good job in organizing implementation.

30. Steady implementation. Adhere to the work policy of classified guidance, separate promotion, hierarchical organization and step-by-step implementation, pay attention to the rhythm, strengthen overall coordination, and achieve a combination of up and down. Those who are ripe can take the lead in reform, and those who do not have the conditions to allow the transition for the time being will not engage in "one size fits all". We should continue to deepen the pilot reform, constantly sum up the pilot experience and improve relevant policies and measures. It is strictly forbidden to promote cadres by surprise, equip cadres with over-the-counter positions or improve the treatment of cadres in violation of regulations. We will earnestly strengthen news propaganda and ideological and political work, correctly guide public opinion, create a good atmosphere for reform, ensure social harmony and stability, ensure that state-owned assets are not lost, and ensure the healthy development of public welfare undertakings.