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Several Opinions of the State Council on Further Promoting the Development of Small- and Medium-sized Enterprises
(No.36 [2009] of the State Council)
The people's governments of all provinces, autonomous regions and municipalities directly under the Central Government, all ministries and commissions of the State Council and all institutions directly under the State Council:
Small- and medium-sized enterprises are a major force in national economic and social development. Promoting the development of small- and medium-sized enterprises is an important foundation for ensuring the steady yet rapid development of the national economy and an important strategic task relating to people's livelihood and social stability. However, due to the impact of the international financial crisis, the small- and medium-sized enterprises in our country have had difficulties in production and operation since the second half of last year. The Central Government timely issued the relevant policies and measures to increase support in terms of finance, taxation, credit, etc. and to improve the business environment for small- and medium-sized enterprises. As a result, there have been positive changes in the production and operation of small- and medium-sized enterprises, but the development situation is still severe: it is still difficult for them to get loans and guarantee; some supporting policies have not been effectively implemented; enterprises have a heavy burden, there have been insufficient market demand and overcapacity, a sharp decline in economic benefits and more losses, etc. We must adopt more active and effective policies and measures to help small- and medium-sized enterprises overcome difficulties and transform the development mode to realize sound and rapid development. We hereby put forward the following opinions for further promoting the development of small- and medium-sized enterprises:
| | 国务院关于进一步促进中小企业发展的若干意见
（国发〔2009〕36号）
各省、自治区、直辖市人民政府，国务院各部委、各直属机构：
中小企业是我国国民经济和社会发展的重要力量，促进中小企业发展，是保持国民经济平稳较快发展的重要基础，是关系民生和社会稳定的重大战略任务。受国际金融危机冲击，去年下半年以来，我国中小企业生产经营困难。中央及时出台相关政策措施，加大财税、信贷等扶持力度，改善中小企业经营环境，中小企业生产经营出现了积极变化，但发展形势依然严峻。主要表现在：融资难、担保难问题依然突出，部分扶持政策尚未落实到位，企业负担重，市场需求不足，产能过剩，经济效益大幅下降，亏损加大等。必须采取更加积极有效的政策措施，帮助中小企业克服困难，转变发展方式，实现又好又快发展。现就进一步促进中小企业发展提出以下意见：
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I. Further constructing a sound environment favorable for the development of small- and medium-sized enterprises
| | 一、进一步营造有利于中小企业发展的良好环境
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1. Improving the policy and legal system on small- and medium-sized enterprises. We shall carry out the policies and measures supporting the development of small- and medium-sized enterprises and clear up the laws, regulations and rules unfavorable for the development of small- and medium-sized enterprises. We shall deepen the reform of monopoly industries, expand the scope of market access, reduce access barriers and further create an open and fair market environment. We shall accelerate the formulation of administrative measures for financing guarantee, revise the General Rules on Loans, revise the standards for the division of medium and small enterprises and specify the policies on supporting small enterprises.
| | （一）完善中小企业政策法律体系。落实扶持中小企业发展的政策措施，清理不利于中小企业发展的法律法规和规章制度。深化垄断行业改革，扩大市场准入范围，降低准入门槛，进一步营造公开、公平的市场环境。加快制定融资性担保管理办法，修订《贷款通则》，修订中小企业划型标准，明确对小型企业的扶持政策。
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2. Improving the relevant systems on supporting small- and medium-sized enterprises by government procurement. We shall formulate the specific measures for supporting the development of small- and medium-sized enterprises by government procurement, and increase the proportion of goods, projects and services purchased from small- and medium-sized enterprises. We shall further enhance the transparency of information disclosure of government procurement and improve the government's public service outsourcing system to provide more opportunities for the participation of small- and medium-sized enterprises.
| | （二）完善政府采购支持中小企业的有关制度。制定政府采购扶持中小企业发展的具体办法，提高采购中小企业货物、工程和服务的比例。进一步提高政府采购信息发布透明度，完善政府公共服务外包制度，为中小企业创造更多的参与机会。
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3. Strengthening the protection of the rights and interests of small- and medium-sized enterprises. We shall supervise and inspect the implementation of the relevant laws and policies on small- and medium-sized enterprises, especially the policies on finance and taxation, give play to the supervision role of news media and public opinions and the role of social supervision and strengthen the evaluation of policy effects. We shall adhere to the administration by law and protect the legitimate rights and interests of small- and medium-sized enterprises and the employees thereof.
| | （三）加强对中小企业的权益保护。组织开展对中小企业相关法律和政策特别是金融、财税政策贯彻落实情况的监督检查，发挥新闻舆论和社会监督的作用，加强政策效果评价。坚持依法行政，保护中小企业及其职工的合法权益。
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4. Constructing harmonious labor relations. We shall take practical and effective measures to increase support for labor-intensive small- and medium-sized enterprises, encourage small- and medium-sized enterprises to cut no jobs or fewer jobs, and stabilize and increase employment. The small- and medium-sized enterprises which employ the personnel with employment difficulties, sign labor contracts and pay social premiums shall be provided with basic endowment insurance subsidies, basic medical insurance subsidies and unemployment insurance subsidies within the corresponding period. For the small- and medium-sized enterprises which have been greatly affected by the financial crisis and have difficulties, the period for implementing the policies on the deferred payment of social insurance premiums for a certain phase or on reducing insurance premiums shall be extended to the end of 2010 and such enterprises shall be provided with social insurance subsidies, post subsidies or on-job training subsidies, etc. for a certain period under the relevant provisions. Small- and medium-sized enterprises may consult with the employees on the wages, working hours and labor quotas, and those which meet conditions may file applications with the local human resources and social security departments for the implementation of the work system with integrative computation of working hours and non-regular working hours.
| | （四）构建和谐劳动关系。采取切实有效措施，加大对劳动密集型中小企业的支持，鼓励中小企业不裁员、少裁员，稳定和增加就业岗位。对中小企业吸纳困难人员就业、签订劳动合同并缴纳社会保险费的，在相应期限内给予基本养老保险补贴、基本医疗保险补贴、失业保险补贴。对受金融危机影响较大的困难中小企业，将阶段性缓缴社会保险费或降低费率政策执行期延长至2010年底，并按规定给予一定期限的社会保险补贴或岗位补贴、在岗培训补贴等。中小企业可与职工就工资、工时、劳动定额进行协商，符合条件的，可向当地人力资源社会保障部门申请实行综合计算工时和不定时工作制。
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II. Effectively alleviating the difficulties of small- and medium-sized enterprises in financing
| | 二、切实缓解中小企业融资困难
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5. Comprehensively carrying out the financial policies supporting the development of small enterprises. We shall improve the system on examining the credit loans of small enterprises, improve the efficiency for verifying and writing off bad debts of small enterprises, and establish and improve the mechanism of liability exemption for those credit personnel duly performing their functions. We shall encourage the establishment of loan risk compensation funds for small enterprises, offer proper subsidies to financial institutions that grant loans to small enterprises based on the amount of increment of such loans, and offer proper risk compensations for the losses incurred from non-performing loans of small enterprises.
| | （五）全面落实支持小企业发展的金融政策。完善小企业信贷考核体系，提高小企业贷款呆账核销效率，建立完善信贷人员尽职免责机制。鼓励建立小企业贷款风险补偿基金，对金融机构发放小企业贷款按增量给予适度补助，对小企业不良贷款损失给予适度风险补偿。
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6. Strengthening and improving financial services for small- and medium-sized enterprises. State-owned commercial banks and joint stock banks shall establish specialized institutions providing financial services for small enterprises, improve the credit-granting business system for small- and medium-sized enterprises, and gradually increase the scale and proportion of medium- and long-term loans for small- and medium-sized enterprises. We shall improve the examination and approval efficiency of loans and innovate on financial products and service modes. We shall improve the property mortgage system and the measures for identifying the collaterals for loans and ease the contradictions of insufficient mortgage and pledge for loans of small- and medium-sized enterprises through the pledge of movable properties, accounts receivables, warehouse receipts, equities, intellectual property, etc. We shall implement differentiated policies on the supervision of the credit business of small- and medium-sized enterprises. We shall establish and improve the financial service system of small- and medium-sized enterprises. We shall speed up the research of measures for encouraging the participation of private capital in the establishment of joint stock financial institutions including village banks, loans companies, etc.; actively support the participation of private capital in restructuring rural credit cooperatives into rural commercial (cooperative) banks, in restructuring urban credit cooperatives into urban commercial banks and in increasing capital and shares of urban commercial banks in the form of equity investment. We shall support and regulate the development of small-sum loans companies and encourage the change of qualified small-sum loans companies into village banks.
| | （六）加强和改善对中小企业的金融服务。国有商业银行和股份制银行都要建立小企业金融服务专营机构，完善中小企业授信业务制度，逐步提高中小企业中长期贷款的规模和比重。提高贷款审批效率，创新金融产品和服务方式。完善财产抵押制度和贷款抵押物认定办法，采取动产、应收账款、仓单、股权和知识产权质押等方式，缓解中小企业贷款抵质押不足的矛盾。对商业银行开展中小企业信贷业务实行差异化的监管政策。建立和完善中小企业金融服务体系。加快研究鼓励民间资本参与发起设立村镇银行、贷款公司等股份制金融机构的办法；积极支持民间资本以投资入股的方式，参与农村信用社改制为农村商业（合作）银行、城市信用社改制为城市商业银行以及城市商业银行的增资扩股。支持、规范发展小额贷款公司，鼓励有条件的小额贷款公司转为村镇银行。
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7. Further broadening the financing channels of small- and medium-sized enterprises. We shall accelerate the construction of the growth enterprise market, improve the incubation mechanism for the listing of small- and medium-sized enterprises, expand the listing scale of small- and medium-sized enterprises and increase direct financing. We shall improve venture and financial leasing policies and vigorously develop venture and financial leasing enterprises. We shall encourage the relevant departments and local governments to establish the venture guidance fund, direct social funds to the establishment of the venture enterprises of small- and medium-sized enterprises and actively develop equity investment funds. We shall give play to the role of such financing forms as financial leasing, pawn and trust in the financing of small- and medium-sized enterprises. We shall steadily expand the issuance scale of collective bonds and short-term financing bonds of small- and medium-sized enterprises and actively foster and regulate the development of the property right trading market to provide services for the property right and equity transactions of small- and medium-sized enterprises.
| | （七）进一步拓宽中小企业融资渠道。加快创业板市场建设，完善中小企业上市育成机制，扩大中小企业上市规模，增加直接融资。完善创业投资和融资租赁政策，大力发展创业投资和融资租赁企业。鼓励有关部门和地方政府设立创业投资引导基金，引导社会资金设立主要支持中小企业的创业投资企业，积极发展股权投资基金。发挥融资租赁、典当、信托等融资方式在中小企业融资中的作用。稳步扩大中小企业集合债券和短期融资券的发行规模，积极培育和规范发展产权交易市场，为中小企业产权和股权交易提供服务。
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8. Improving the credit guarantee system for small- and medium-sized enterprises. We shall set up the multi-level small- and medium-sized enterprise financing guarantee funds and guarantee institutions funded by the central or local public finance departments and those jointly established by enterprises. The public finance departments at all levels shall increase support and comprehensively apply various means including investment, risk compensation, rewards and subsidies, etc. to improve the capacities of guarantee institutions for providing financing guarantees for small- and medium-sized enterprises. We shall carry out the policies on the exemption of business tax, drawing of the provision and the pre-tax deduction of loss compensations of institutions providing credit guarantee for small- and medium-sized enterprises. The departments of land and resources, housing and urban-rural development, finance, industry and commerce, etc. shall provide high-quality services for small- and medium-sized enterprises and guarantee institutions in the collateral and pledge registration, determination of rights, transfer, etc. We shall strengthen the supervision of financing guarantee institutions and direct their regulated development. We shall encourage insurance institutions to actively develop insurance products serving small- and medium-sized enterprises.
| | （八）完善中小企业信用担保体系。设立包括中央、地方财政出资和企业联合组建的多层次中小企业融资担保基金和担保机构。各级财政要加大支持力度，综合运用资本注入、风险补偿和奖励补助等多种方式，提高担保机构对中小企业的融资担保能力。落实好对符合条件的中小企业信用担保机构免征营业税、准备金提取和代偿损失税前扣除的政策。国土资源、住房城乡建设、金融、工商等部门要为中小企业和担保机构开展抵押物和出质的登记、确权、转让等提供优质服务。加强对融资性担保机构的监管，引导其规范发展。鼓励保险机构积极开发为中小企业服务的保险产品。
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9. Giving play to the role of credit information services in the financing of small- and medium-sized enterprises. We shall push forward the construction of the credit system of small- and medium-sized enterprises, establish and improve the small- and medium-sized enterprise credit information collection mechanism and evaluation system and increase the financing credit ratings of small- and medium-sized enterprises. We shall improve the individual and enterprise credit investigation system and provide convenient and rapid inquiry services for the financing of small- and medium-sized enterprises. We shall build the credit restraint mechanism which benefits those who keep faith and punishes those who break faith and enhance the credit awareness of small- and medium-sized enterprises.
．．．．．． | | （九）发挥信用信息服务在中小企业融资中的作用。推进中小企业信用制度建设，建立和完善中小企业信用信息征集机制和评价体系，提高中小企业的融资信用等级。完善个人和企业征信系统，为中小企业融资提供方便快速的查询服务。构建守信受益、失信惩戒的信用约束机制，增强中小企业信用意识。
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