In order to thoroughly implement the Third Plenary Session of the 18th CPC Central Committee and the Fourth Plenary Session of the 11th Provincial Party Committee, the Central and Provincial Party Committee Rural Work Conference and Poverty Alleviation and Development Work Conference, and the "China Rural Poverty Alleviation and Development Outline (2011) —2020)" (hereinafter referred to as the "Outline"), "Opinions on Innovating Mechanisms to Solidly Promote Rural Poverty Alleviation and Development Work" (Zhongbanfa [2013] No. 25, hereinafter referred to as the "Opinions"), "Guizhou Province Poverty Alleviation and Development Regulations" (hereinafter referred to as the "Regulations"), summarize the practices and experiences of regulating grassroots innovation, and improve the effectiveness of industrialized poverty alleviation. The following guidance is hereby provided on the innovation of the interest linkage mechanism for industrialized poverty alleviation.
1. Overall idea
(1) Purpose and significance
1. The need to implement the central and provincial poverty alleviation and development spirit. The "Outline" points out: It is necessary to drive and help poor farmers to develop production through leading poverty alleviation enterprises, farmers' professional cooperatives and mutual aid fund organizations. The "Opinions" require: mobilize social forces more extensively and more effectively to build a large-scale poverty alleviation and development pattern promoted by the government, market, and society; actively cultivate farmer cooperative organizations in poor areas and improve the degree of organization of poor households in industrial development; encourage Enterprises are engaged in agricultural industrialization operations, giving full play to the leading role of leading enterprises, exploring the establishment of interest linkage mechanisms between enterprises and poor farmers, and promoting the steady increase in income of poor farmers. The "Regulations" clearly state that citizens, legal persons and other organizations are encouraged to participate in poverty alleviation and development by providing jobs, ordering agricultural products, establishing production bases, co-organizing farmers' professional cooperative economic organizations, investing in shares, science and technology contracting and technology promotion; For industrial poverty alleviation projects that mainly use special fiscal poverty alleviation funds, after establishing and improving the benefit linkage mechanism for poverty alleviation objects, they can be implemented by farmers' professional cooperative economic organizations, leading poverty alleviation enterprises, or professional large household organizations. To implement the spirit of the central and provincial governments on poverty alleviation and development, especially industrialized poverty alleviation, we must use market economy ideas and methods to promote industrialized poverty alleviation. We must both target poverty alleviation and improve development results. We must establish and improve a system with poor farmers as the core, A poverty alleviation and development interest linkage mechanism with poverty alleviation benefits as the key will be used to build a new industrialized poverty alleviation system and promote the market to play a decisive role in the allocation of poverty alleviation resources.
2. The need to break the bottleneck of industrialized poverty alleviation and improve development effectiveness. Our province has poor natural conditions, large poverty areas, deep poverty levels, low industrial development, and a shortage of old and weak agricultural laborers. Industrial poverty alleviation is difficult. There are three outstanding problems in three aspects: First, project funds directly support poor farmers and self-development. Weak capacity makes it difficult to cope with the triple risks of market, nature and technology, and the project implementation and industrial development effects are poor; secondly, project funds directly support enterprises and large households, lack of standardized and effective interest connection mechanism constraints with poor farmers, and cannot effectively reflect poverty alleviation policies and The effectiveness of poverty alleviation; third, poverty alleviation policies and measures have not fully adapted to the requirements of industrialized poverty alleviation, and the effectiveness of poverty alleviation fund projects needs to be further improved. Practice has proven that industrialized poverty alleviation is the only path for poverty alleviation and development, and it is also the inevitable choice for targeted poverty alleviation; various leading enterprises, cooperative organizations and major professional households are irreplaceable market entities that implement industrialized poverty alleviation and lead poor farmers out of poverty and become rich. To further improve the effectiveness of industrialized poverty alleviation in our province, we must introduce external forces and activate internal forces, change from simple "support to households" to "benefits to households", adhere to the concept of "supporting leading enterprises is to support farmers", and innovate "government support for leading enterprises - The industrialized poverty alleviation system of "leading the construction of bases and connecting bases with farmers" promotes a win-win situation for market entities and poor farmers.
3. The need to standardize and guide the practice of innovative industrialized poverty alleviation at the grassroots level. In recent years, various localities have actively explored and innovated interest linkage mechanisms and models for industrialized poverty alleviation, and adopted various forms of pilot demonstrations, which have achieved gratifying results. However, due to imperfect and irregular interest linkage mechanisms, some mechanisms and models have varying degrees of problems. Insufficiencies and problems, such as: using the name of poor households without benefiting from them, using poverty alleviation funds without assuming corresponding poverty alleviation responsibilities, using fraud to obtain poverty alleviation funds, etc.
Therefore, we must carefully summarize and promote the successful experience of the interest linkage mechanism for industrialized poverty alleviation, solve existing problems, strengthen the hard constraints on the interests of market entities and poor farmers, and actively support leading enterprises and cooperatives that really help the poor, do real things, and achieve real results. , major professional households, standardize relevant behaviors and standards, and strictly supervise and manage, so that the government’s poverty alleviation will can truly be transformed into actual poverty alleviation actions by various market entities, and effectively avoid and put an end to phenomena such as “off-target, derailment, and out-of-tune” phenomena.
(2) Basic principles
1. Be proactive and prudent and advance gradually. First gain experience on the points, and after provincial review and approval, a batch will be matured, standardized and promoted.
2. Mutual benefit, win-win, and operability. Respect the objective laws of industrial development, take into account the wishes and interests of all parties with interests, especially poor farmers, and do not set excessively high false targets based on the authenticity and feasibility of the project and the operability of the model.
3. Prioritize fairness and take efficiency into account. It not only conforms to the laws of market economy, but also can achieve household coverage of industry and poverty alleviation benefits. When multiple models are feasible, the "household model" will be given priority.
4. Adapt measures to local conditions and provide classified guidance. According to the difficulty and risk level of industrial development and the actual situation of the project area, different connection models should be selected, and "one size fits all" should not be adopted.
(3) Main goals
1. Vigorously promote the "3578" and "3 Ones" plans. Vigorously develop the ten major poverty alleviation industries. Each poverty-stricken county will cultivate about 3 leading industries, covering 50% of the towns, specialized towns covering 70% of the villages, and specialized villages covering 80% of the rural households; one poverty-stricken village will cultivate one leading industry, Introduce and cultivate a leading enterprise or establish a professional cooperative.
2. Vigorously promote the “one person per household” plan. A poor rural family must have at least one teenager receiving secondary vocational education or above, or one young adult labor force receiving skills training and then transferring to employment, or one person joining a leading enterprise or cooperative.
(4) Key points of innovation
1. Innovate the precise guidance mechanism for poverty alleviation. The key to "precision poverty alleviation" lies in "precision guidance", which requires vigorous efforts to explore and innovate effective mechanisms that rely on market means to drive poor farmers. Industrialized poverty alleviation must not only avoid following the old path of one-sided, mechanical, and simple distribution of money and goods to households, but also prevent the behavior of "building large households" that supports enterprises, cooperatives, and large households without radiating and driving poor farmers.
2. Innovate the mechanism for delivering poverty alleviation benefits to households. It is necessary to follow the laws of the market and judge success or failure based on the success of the project and the delivery of poverty alleviation benefits to each household. Only by ensuring the success of the project and the development of the industry can it play its role in poverty alleviation. At the same time, more emphasis will be placed on driving the number and effects of poor farmers, reflecting the benefits of poverty alleviation to households, so that the benefits of poverty alleviation industries and projects can truly benefit poor farmers.
3. Innovate the implementation mechanism of poverty alleviation projects. Find out the positioning of the government, market and society in the large-scale poverty alleviation and development pattern. The government is mainly responsible for top-level design, resource integration, education and training, infrastructure, coordinated services, environment creation, and protection of the rights and interests of poor households, etc., allowing various market entities to implement professional and industrialized poverty alleviation. On the premise of clear poverty alleviation responsibilities, industrialized poverty alleviation projects can guide various market entities to organize their implementation through entrustment, contracting, procurement, etc.
4. Innovate the mechanism for using poverty alleviation funds. Poverty alleviation funds are mainly invested in the form of construction first and then subsidies, awards instead of subsidies, loan interest subsidies, private subsidies, government purchase of services, etc. It is necessary to adjust and improve supporting fund project management methods, guide more social funds to enter, and expand special fiscal poverty alleviation funds. The introduction effect. At the same time, the poverty alleviation funds that are directly subsidized to households are encouraged to cooperate with market entities such as leading enterprises, and adopt methods such as exchanging capital for shares, dividends on shares, and leasing to improve the efficiency and effectiveness of use.
5. Innovate the property rights management mechanism of poverty alleviation projects. The fixed assets formed by industrialized poverty alleviation projects shall, on the basis of clarifying that the property rights belong to the project farmers, and taking into account the performance of poverty alleviation responsibilities, encourage the separation of ownership and management rights, and entrust, lease, and transfer them to capable market entities for operation, so as to maintain and increase their value. , play a long-term role in poverty alleviation.
2. Promotion model
Summarize the experience gained in refining the points, and promote the model of "leading enterprises + cooperatives + bases + farmers, agricultural poverty alleviation parks + leading enterprises + cooperatives + bases + farmers, There are six models: rural party and government + enterprises + cooperatives + bases + farmers, mutual assistance and cooperation between farmers, technical departments + township governments (cooperatives, associations) + bases + farmers, government + banks + enterprises + cooperatives + farmers. Each region can combine local and Actual industrial demonstrations are promoted and further improved, while actively exploring new models and new mechanisms.
(1) Leading enterprises + cooperatives + bases + farmers
Main operating methods: "leading leadership, combination of centralization and distribution, bottom-line sales, secondary rebates"; "direct subsidies to households" , convert capital into shares, cooperate voluntarily, share dividends, and return capital on return of shares"; "Leading on improved varieties, three-level operations, joint household breeding, integration of unified distribution, and advancement of the entire industry chain"; "Leading households with the field, transferring barren hills, and coordinating breeding grass, work training, order planting"; "land remediation, company construction of gardens, construction first and then replenishment, farmers subcontract, purchase at protective price"; "company + cooperative + branch + micro enterprise + farmer"; "school-enterprise integration Organization + Rain and Dew Plan Training + Returning Hometown Production Practice + Order Recycling Student Works" etc. The farmer's first income = protective price pricing acquisition + the income from the leading advance capital development, the second income = the leading operating profit rebate; for joint-stock operations, one-time investment, rolling development, permanent dividends.
All localities should combine reality and actively promote the industrialized poverty alleviation model of "leading enterprises + cooperatives + bases + farmers" with universal significance and promotion value, and improve the operating mechanism and benefit mechanism. Give full play to the leading role of leading enterprises in unified planning, seed supply, technology, acquisition, processing, sales, quality, brand, etc., and complement each other with farmers' labor, land, ancillary facilities and other resource advantages and mutual benefits, and jointly form cooperatives or household production Management, accelerate the cultivation of a team of professional farmers who understand technology and management, promote the development of family farms + cooperatives + enterprises and other unified and integrated operating entities, improve the degree of organization, and realize the transformation from small production where each household "works independently" to "Baotuan" meets the changes in the big market. At the same time, it is necessary to comprehensively understand the economic strength, operating capabilities and poverty alleviation integrity of market entities, clarify the "responsibilities, rights, and benefits" of poverty alleviation through agreements, contracts, etc., and strengthen supervision to ensure that leaders and farmers form a true community of interests.
(2) Agricultural Poverty Alleviation Park + Leading Enterprises + Cooperatives + Bases + Farmers
Main operation methods: "Land circulation, intensive management, external introduction and internal connection, construction first and then supplementing" "Training and demonstration, anti-renting and subcontracting, the leader takes the lead, mutual benefit and win-win"; "Supermarket + Park + Base + Farmers", etc. Using the park as a platform, county and township governments uniformly transfer land and build infrastructure → attract investment and lead the construction of demonstration bases → build first and then supplement the bases and facilities built by each leader. The initial income of farmers = land transfer fee + wages, and the sustainable income of farmers = the income of farmers who have been trained and mastered the skills of renting and subcontracting production and operation.
All localities should focus on the construction of industrial poverty alleviation parks and strengthen service guidance. County and township governments should seize the key and difficult point of land transfer, select the leading industries, and adopt the policy of building first and then supplementing related facilities, and using rewards instead of subsidies. , "water the seedlings as soon as they are seen" to amplify the introduction effect of poverty alleviation funds. It is necessary to vigorously attract investment, attract social capital investment, introduce more leading enterprises, provide production plans, agricultural materials and technical services, implement product sales, build a platform to enter the high-end market, strengthen the "three products" strategy, and promote the development of the park into a "smoke-free" Factory”, farmers transformed into industrial workers. It is necessary to guide market entities to play their main role in specific construction and operation as soon as possible, and at the same time establish and improve the interest connection mechanism with poor farmers to avoid being disconnected from poverty alleviation.
(3) Rural Party and Government + Enterprises + Cooperatives + Bases + Farmers
Main operating methods: "Unification of villages and enterprises, debt (capital) swap, villagers hold shares, "Market operation, guaranteed principal and interest"; "Classified policies, surrender of insurance and poverty alleviation, activating internal forces, leading the way"; "Introducing intelligence and investment, promoting rural rectification, training for all, and rolling development", etc. Use village-run enterprises as a platform to strive for support and financing → Convert various borrowings (loans) into shares → Villagers voluntarily subscribe for shares, use the "three rights" as counter-guarantee, guarantee principal and interest; implement appropriate measures for existing subsistence allowance recipients We will ensure all the benefits are guaranteed and retire all the people who should be retired, mobilize the laboring retirees to participate in the development of poverty alleviation projects, introduce and cultivate leading leaders; recruit talents and intelligence to drive investment, cadres will be assigned to work, implement national training, demonstrate at all levels, and develop on a rolling basis. , promote the whole village and township.
All localities must give full play to the important role of grassroots organizations in poverty alleviation and development, especially industrialized poverty alleviation, strengthen the construction of grassroots organizations, cultivate local characteristic and advantageous industries, and establish a system that is in line with market laws and can achieve common prosperity for all. An effective mechanism for industrialized poverty alleviation, solve the problem of effective connection between the "two systems" of rural subsistence allowances and poverty alleviation and development, get rid of the misunderstanding of "waiting, relying, and wanting", strengthen development-based poverty alleviation, and actively explore remote and impoverished mountainous towns to cultivate industries and increase incomes , improve quality, and promote the whole village and township.
(4) Mutual aid and cooperation between farmers
The main mode of operation: "Building the garden → Operation → Leasing (handover)"; "Five unified points, joint guarantee and mutual assistance, and teamwork to go out"; " Large households lead small households, joint household development, cooperative sharing, etc. Poverty alleviation funds subsidize farmers to build gardens (fields) and manage them until they are put into production → lease or hand over the gardens (fields) → share the labor to farmers or farmers who transfer land to lease operations; members jointly guarantee and help each other to effectively obtain loans; large households transfer land for construction Garden→Teach migrant farmers techniques→Farmers bring seedlings to build their own orchards→Collaborate with large and small ones to share→Unify, divide and combine to form a large scale.
All localities should give full play to the role of rural leaders such as capable people and large households, returning to their hometowns to start businesses, and guide farmers to complement each other's advantages in land, capital, labor and other resources, optimize the combination, and improve farmers' self-reliance and self-development. , awareness and ability of cooperative development, improve the degree of organization, and improve the success rate of project construction. It is necessary to strengthen guidance, standardize management, strengthen guidance and training, and improve farmers' awareness of integrity. At the same time, necessary arbitration mechanisms should be established.
(5) Technical department + township (cooperative + association) + base + farmers
Main operation method: "Technical department builds demonstration base or farmers use land as shares to build base , unified planning, grass planting, sales, household breeding, management and accounting"; "Borrowing mothers to return (mother) lambs, profit sharing, rolling development"; "Building demonstration seedling centers and carrying out commercial seedlings → poverty alleviation funds to subsidize seedlings →Separate production and operation” etc.
All localities should actively play the professional role of technical departments, lead the structural adjustment of industrial bases and test demonstrations and promotion training of new varieties and new technologies, provide technical support and services, and support the development of large-scale investments and high technical difficulties. , industries with high facilities requirements and good economic benefits. It is necessary to strengthen the technical department's own capabilities, market entry points and operational efficiency, and implement enterprise-oriented and benefit-oriented management.
(6) Government + Banks + Enterprises + Cooperatives + Farmers
Main operating methods: "Government guides the industry, enterprises apply for loans, expert bank assessments, poverty alleviation fund interest discounts, agricultural enterprise interests "Connection, corporate loans and repayments"; "Four systems and one amplification, government and bank supervision, risk compensation", etc. Establish "four platforms and one association". Counties and townships have established four platforms for financing, guarantees, management, and publicity, and villages have established credit associations; the "three unifications" of loan application, interest repayment, and borrowing obligations have been implemented. Borrowers have real estate, forest rights, and wages. and other counter-guarantees; the government, banks, and industrial departments work together to establish systems such as risk compensation, loan review and control, joint guarantee responsibilities, and management responsibilities; loans are jointly guaranteed by three households, and are used centrally by cooperatives, operated in a closed manner, and unified To repay, the financial sector will issue loans and poverty alleviation funds will provide interest discounts.
Party committees and governments at all levels, especially at the county level, must attach great importance to unifying the understanding of "government, banking, enterprise, and agriculture", establishing and improving the interest linkage mechanism, clarifying the leading industries, and the "trinity of production, marketing, and credit cooperation" "While expanding poverty alleviation funds and promoting industrial scale development, we should also improve the honesty and trustworthiness of poor farmers, effectively solve the outstanding problems of difficulty in obtaining loans for enterprises and cooperatives to develop large-scale development, and low efficiency of farmers' decentralized operations, so as to achieve the goal of "getting loans and using them effectively." Good, still good." It is necessary to standardize management methods to ensure the authenticity, feasibility and effectiveness of supervision of project implementation, implement the poverty alleviation responsibilities of leading enterprises and cooperatives, and protect the interests of poor farmers.
3. Safeguard Measures
(1) Raise awareness and strengthen leadership
It is necessary to further raise awareness, emancipate the mind, change concepts, broaden ideas, and integrate the benefits of innovation As an important starting point to improve the efficiency of industrialized poverty alleviation, the linkage mechanism firmly grasps the two keys to the success rate of poverty alleviation projects and the rate of poverty alleviation benefits reaching households, and coordinates the relationship between industrial development and poverty alleviation to households, market entities and the interests of poor farmers. Strengthen organizational leadership, actively explore and innovate, improve supporting measures, and vigorously build a comprehensive poverty alleviation and development pattern that is coordinated by the government, market, and society.
(2) In-depth research and improvement of policies
Closely focus on the five innovative key points of precise guidance, benefits to households, implementation methods, fund use, and property rights management, combined with preliminary screening and promotion of Typical model, in-depth investigation and research, full respect for the pioneering spirit of the grassroots and the masses, breaking through institutional barriers, increasing vitality through reform, and improving efficiency through innovation. First, we must respect the rules and provide classified guidance. In principle, the household-based model should be implemented for industries that are not difficult to produce and operate, have low market risks, and have high public enthusiasm, and that poor households themselves can and can do well; for industries that are technically difficult and have high market risks, in-depth Do a good job in mass work carefully and guide the implementation of leadership. Second, we must implement regional development and differentiated subsidies. Counties can implement subsidies for registered poor households, flower arrangement non-poor households, demonstration households, large households, cooperatives, and leading enterprises covered by the same poverty alleviation project area in accordance with provincial standards without exceeding the total subsidy amount and based on the actual situation of the project area. Differentiated subsidies, specific subsidy policies and methods, shall be researched, formulated and implemented by the poverty alleviation and development leading group at the same level, and reported to the Provincial Poverty Alleviation Office for filing. Third, we must encourage paid use and innovate the rolling development mechanism. County-level governments can convert poverty alleviation funds into shares of poor households, invest in various market-driven entities, and distribute dividends on a per-share basis to achieve long-term returns; they can use poverty alleviation funds as "risk compensation" and set up special accounts in relevant financial departments for closed operations. It is specially used to support poor farmers with loans to develop industries and amplify the effect of poverty alleviation funds.
(3) Driven by opening up and strengthening entities
It is necessary to further expand opening up internally and externally, give full play to the advantages of counterpart assistance such as "private enterprises entering Guizhou", actively introduce various market entities and Cultivate a strong leading team to participate in industrialized poverty alleviation, adopt social bidding, poverty alleviation contract system and other forms, clarify specific poverty alleviation responsibilities, establish, lead and undertake poverty alleviation projects. It is necessary to fully respect the dominant position of poor farmers in poverty alleviation and development, encourage them to carry forward the spirit of self-reliance and hard work, learn and master market economic knowledge and skills, and guide them to participate in industrialized poverty alleviation models that suit their actual conditions.
(4) Standardized operation, hierarchical responsibility
The province-wide promotion process is: click to gain experience first → county recommendation → city and state verification → provincial recognition. The county level is responsible for the authenticity of the recommended models and conducts daily supervision. In particular, it is necessary to strengthen the improvement and supervision of the models that have been launched to ensure that support for poor households is fulfilled; the cities and states strengthen coordination and supervision; the provincial level is responsible for the identification of the province's promotion models. , guidance and supervision. Those that are implemented first must be approved by the people's government at the county level and reported to the province for record. Those that have been successfully piloted locally must be actively demonstrated, and the successful models recognized by the provincial level are promoted throughout the province.
(5) Strengthen supervision and prevent risks
First, ensure the rights of poor households to know, participate, choose, manage, and supervise, and strengthen the supervision of beneficiaries. Second, we must change "pre-control" to "watering the seedlings". All kinds of leading enterprises, cooperatives, and large professional households that participate in the implementation of poverty alleviation projects can apply for poverty alleviation fund subsidies after independent construction; all levels can select the real, best, and strong among the applied projects, and organize poverty alleviation, finance, auditing, supervision and other departments Subsidies will be cashed out after comprehensive inspection and acceptance of the construction status and performance of poor households, and confirmation by poor farmers; if poverty alleviation fund subsidies are provided in the form of construction first and then subsidies, awards instead of subsidies, private subsidies, government purchase of services, etc., they can be directly allocated to various Market entities and report accounts. Third, we must adhere to and improve the public announcement system. Adopt a variety of effective methods to make public announcements on the poverty alleviation fund subsidies enjoyed by various market entities, the scale of implementation projects, assistance and promotion of poor farmers, etc., accept the supervision of poor farmers, specialized agencies and all sectors of society, and put an end to secret operations and preferential treatment of relatives. Cheating, false claims, fraud and other phenomena occur.