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    財稅體制改革正在攻堅

    2018-2-28 13:30:16

    財政是國家治理的基礎和重要支柱。黨的十九大報告從全局和戰略高度強調加快建立現代財政制度,并明確了深化財稅體制改革的目標要求和主要任務。

    目前,財稅領域改革多點突破,不斷向縱深推進。財政事權和支出責任劃分改革取得重大進展、嚴管地方政府債務守住風險底線……一系列難啃的“硬骨頭”正在被攻堅克難。

    明確中央地方權責,更好兜牢民生底線

    財政事權和支出責任劃分改革是建立現代財政制度的重要內容。黨的十九大報告把“建立權責清晰、財力協調、區域均衡的中央和地方財政關系”放在財稅體制改革三大任務之首,凸顯出這項改革的重要性和緊迫性。

    近日,國務院辦公廳印發《基本公共服務領域中央與地方共同財政事權和支出責任劃分改革方案》,將義務教育、學生資助、基本就業服務、基本養老保險、基本醫療保障、基本衛生計生、基本生活救助、基本住房保障等八大類、共18個事項納入中央與地方共同財政事權范圍,并規范支出責任分擔方式,標志著財政事權和支出責任劃分取得了新的重大進展。

    “這些事項都涉及基本民生,支出穩定性強,率先明確為中央與地方共同財政事權,規范相關保障標準和分擔比例,有利于增強政策的穩定性,更好地兜牢民生底線,促進基本公共服務均等化水平的提高。”財政部有關負責人表示。

    這次改革在多個方面實現重要突破,比如,逐步規范基礎標準是推進基本公共服務均等化的重要內容,《方案》參照現行財政保障或中央補助標準,制定9項基本公共服務保障的國家基礎標準。

    在支出責任分擔方面,主要實行按比例分擔,并保持基本穩定,對基本公共衛生服務等7個事項實行中央分檔分擔辦法,并將其分擔比例適當簡化和歸并為五檔。對義務教育公用經費保障等6個按比例分擔、按項目分擔或按標準定額補助的事項,暫按現行政策執行。對基本公共就業服務等5個事項,中央分擔比例主要依據地方財力狀況、保障對象數量等因素確定。

    記者了解到,在《方案》出臺后,包括教育、醫療衛生等在內的具體領域財政事權和支出責任相關文件將陸續出臺。“現在改革進入深水區,需要涉險灘、啃‘硬骨頭’。《方案》有利于進一步解決中央與地方部分財政事權不夠清晰明確、責任落實不到位等問題,促進財政事權劃分的制度化、法治化、規范化。”中國財科院院長劉尚希說。

    預算改革穩步推進,地方債務嚴格管理

    近年來,預算管理制度在預算公開、轉移支付、地方政府債務管理等方面大力推進。在預算公開方面,著力打造陽光財政,預算編制持續細化,預算透明度不斷增強,提交全國人民代表大會和向社會公眾公開的預算報告、預算草案內容越來越多、信息量越來越大,也越來越清晰易懂。

    作為預算管理制度的一項重要改革,2018年將實施支出經濟分類科目改革,在繼續保留部門預算支出經濟分類科目的同時,增加設置一套政府預算支出經濟分類科目,意味著政府賬本更細、更透明,有利于清晰明了、全面完整地反映預算支出。

    打好防范化解重大風險攻堅戰,地方政府債務管理和風險防控是重要內容。雖然目前地方政府債務風險總體可控,但個別地方政府繼續違法違規或變相舉債,累積隱性債務,風險不容忽視。

    財政部會同國家發展改革委等部門出臺政策,對違法違規或變相舉債行為嚴格監管,多次通報處理部分地區違法違規舉債擔保情況,相關責任人受到行政撤職、行政降級、行政記大過等處分。

    “堅決剎住無序舉債之風,有效遏制隱性債務增量,堅持誰舉債、誰負責,嚴格落實地方政府屬地管理責任,債務人、債權人依法合理分擔風險,積極穩妥處置隱性債務存量,堅決打好防范化解重大風險的攻堅戰。”財政部有關負責人表示。

    在嚴厲堵住違法違規融資“后門”的同時,為滿足地方政府的融資需求,著力開好規范舉債的“前門”。推進地方政府專項債券改革、打造中國版的“市政收益債券”,是開好地方融資“前門”的重要舉措,多個省份先后發行土地儲備、政府收費公路專項債券。深圳市在2017年12月份成功發行軌道交通專項債券,是全國首例項目融資與收益自求平衡的地方政府專項債券新品種,在地方政府專項債券改革中跨出了重要一步。

    此外,2018年中央一號文件提出,支持地方政府發行一般債券用于支持鄉村振興、脫貧攻堅領域的公益性項目。穩步推進地方政府專項債券管理改革,鼓勵地方政府試點發行項目融資和收益自平衡的專項債券,支持符合條件、有一定收益的鄉村公益性項目建設。

    減稅降負彰顯紅利,綠色稅制加速構建

    “稅務部門落實各項稅收優惠政策,給我們帶來實實在在的紅利。2017年以來,天能集團實現固定資產抵扣4000萬元,有9家子公司享受到高新技術企業稅收優惠近2.44億元,減免稅款近3660萬元,1家資源綜合利用企業享受即征即退稅收優惠近1000萬元,有效推動企業研發創新和綠色轉型。”浙江天能集團董事長張天任欣喜地說。

    減稅降負有力促進了供給側結構性改革,助推經濟高質量發展。國家稅務總局最新數據顯示,2017年營改增試點共減稅9186億元,比2016年增加3450億元。此外,實施小型微利企業所得稅減半征收政策共減稅454億元,提高科技型中小企業研發費用稅前加計扣除比例、開展創業投資企業和天使投資個人有關稅收政策試點等合計減稅200多億元。

    除了實施減稅政策,稅制改革也穩步向前推進。2017年底,國務院廢止了營業稅暫行條例、修改增值稅暫行條例,依法確定和鞏固了營改增試點改革成果。

    作為我國第一部專門體現“綠色稅制”、促進生態文明建設的單行稅法,《環境保護稅法》于2018年1月1日起施行。稅務總局財產和行為稅司司長蔡自力介紹,稅務部門扎實推進各項征管準備工作,目前各項征管準備工作已基本就緒。“截至目前,各級地稅機關已全部明確時間表、路線圖、任務書和責任人。”他說。

    資源稅全面從價計征改革是推動經濟高質量發展、建設生態文明的重要舉措。這項改革運行一年多來,增強了資源稅調節功能,促進了資源節約和高效利用,而且優化收入分配增加了資源大省財力。截至2017年12月份,28個省資源稅實現增收。

    “根據黨的十九大關于‘深化稅收制度改革,健全地方稅體系’等要求,2018年將進一步深化稅制改革,助力供給側結構性改革,更有力服務實體經濟發展,促進經濟高質量發展。”西南財經大學教授、西財智庫首席研究員湯繼強說。

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