金融精准扶贫：构建完善体系 形成中国特色经验

Financial Precision Poverty Alleviation: Building a Perfect System to Form Experience with Chinese Characteristics

2020年，中国巨大减贫成就令全世界瞩目，在为全球落实2030年可持续发展议程作出重大贡献的同时，中国精准扶贫方略的实施也进一步为各国实现减贫可持续目标提供了重要范例。

In 2020, China's great achievements in poverty reduction attracted worldwide attention. While making significant contributions to the global implementation of the 2030 Sustainable Development Agenda, the implementation of China's precise poverty alleviation strategy has further provided an important example for countries to achieve the sustainable goal of poverty reduction.

作为精准扶贫的重要方面之一，金融扶贫是帮助贫困人口脱贫增收和降低脆弱性的重要途径。中国人民银行积极践行“金融为民”理念，构建完善金融精准扶贫政策、产品、服务和工作体系，在提高金融服务实体经济效能的同时，聚焦贫困主体，强化要素投入，精准滴灌，不断增强贫困地区和贫困群众内生发展动力。

As one of the important aspects of precise poverty alleviation, financial poverty alleviation is an important way to help the poor out of poverty, increase income and reduce vulnerability. The People's Bank of China has actively practiced the concept of "finance for the people" and has constructed and improved the financial precise poverty alleviation policies, products, services and working systems. While improving the real economic efficiency of financial services, it has focused on the poor subjects, strengthened factor input and precise drip irrigation, and continuously enhanced the endogenous development power of poor areas and poor people.

践行“金融为民”理念，构建完善金融精准扶贫体系

Practicing the Concept of "Finance for the People" and Constructing and Perfecting the Financial Precision Poverty

作为金融行业扶贫和中央金融单位定点扶贫“双牵头”单位，中国人民银行通过构建完善金融扶贫政策的顶层设计、大幅拓宽贫困地区金融服务覆盖面、有效激发贫困地区发展内生动力、围绕金融支持和风险防范实现高质量可持续脱贫等四个方面，调动全金融系统力量集中攻坚，加大对贫困地区的金融资源投入，为改变中国贫困地区落后面貌、提高贫困群众生活水平、推动农村经济社会发展作出了积极贡献。

As a "double-lead" unit for poverty alleviation in the financial industry and designated poverty alleviation by central financial units, The People's Bank of China has greatly expanded the coverage of financial services in poor areas by constructing and improving the top-level design of financial poverty alleviation policies, effectively stimulated the endogenous power of development in poor areas, and realized high-quality and sustainable poverty alleviation around financial support and risk prevention. Mobilizing the strength of the entire financial system to concentrate on tackling crucial problems and increasing investment in financial resources in poor areas have made positive contributions to changing the backwardness of poor areas in China, improving the living standards of poor people and promoting rural economic and social development.

完善金融扶贫政策的顶层设计，统筹创新发展与风险防范。全面规划金融支持建档立卡贫困户、易地扶贫搬迁、深度贫困地区、产业扶贫、基础设施建设等脱贫攻坚重点领域的政策措施，创设并完善扶贫再贷款，让低成本资金精准流向扶贫开发领域，降低贫困地区社会融资成本。中国人民银行金融消费权益保护局发布的中国普惠金融指标分析报告（2020年）数据显示，自打响脱贫攻坚战以来，扶贫再贷款累计发放6688亿元，金融精准扶贫贷款发放9.2万亿元。

We will improve the top-level design of financial poverty alleviation policies and coordinate innovative development and risk prevention. We will comprehensively plan policies and measures to support the establishment of files for poor households in Lika, relocation of poverty alleviation, deep poverty-stricken areas, industrial poverty alleviation, infrastructure construction and other key areas of poverty alleviation. We will create and improve poverty alleviation refinancing loans so that low-cost funds can flow accurately to poverty alleviation and development areas and reduce social financing costs in poverty-stricken areas. According to the data in the Analysis Report on China's Pratt & Whitney Financial Indicators (2020) released by the Financial Consumer Rights Protection Bureau of the People's Bank of China, since the beginning of the battle against poverty, a total of 668.8 billion yuan of poverty alleviation refinancing loans and 9.2 trillion yuan of financial precision poverty alleviation loans have been issued.

大幅拓宽贫困地区金融服务覆盖面，加大对深度贫困地区的金融资源倾斜力度。形成开发性、政策性、商业性、合作性等金融机构共同参与的金融扶贫工作格局，进一步通过综合采取降低信贷准入条件、提高风险容忍度等措施，对贫困地区金融服务实行差异化管理，有效解决贫困地区金融市场发展不充分、金融服务供给能力不足的问题。通过上系列举措，大幅提高贫困地区金融服务的普惠性和可得性。数据显示，2020年末，原贫困地区支付服务村级行政区覆盖率达99.7%，全国累计为近1.9亿农户建立了信用档案。

We will greatly expand the coverage of financial services in poor areas and increase the inclination of financial resources to deep poor areas. A pattern of financial poverty alleviation work involving development, policy, commercial, cooperative and other financial institutions has been formed. Further through comprehensive measures such as reducing credit access conditions and improving risk tolerance, differentiated management of financial services in poor areas will be implemented to effectively solve the problems of insufficient development of financial markets and insufficient supply capacity of financial services in poor areas. Through the above series of measures, the inclusiveness and availability of financial services in poor areas will be greatly improved. Data show that by the end of 2020, the coverage rate of village-level administrative districts in the original poor areas had reached 99.7%, and credit files had been established for nearly 190 million farmers nationwide.

有效激发贫困地区发展内生动力，因地制宜探索多样化金融精准扶贫做法。根据贫困地区带贫益贫成效，因地制宜创新产品服务，形成“银行让利、企业带动、贫困户受益”的带贫益贫机制，增强金融资源承载力。2016年以来，已累计发放贫困人口贷款近3万亿元和产业精准扶贫贷款4万亿元，累计支持贫困人口9000多万人次。疫情以来，中国人民银行分层次有梯度地运用一系列货币政策工具，并创设普惠小微企业贷款延期支持工具、普惠小微企业信用贷款支持计划两项直达实体的货币政策工具，有力缓解了小微企业的资金难题。截至2020年末，普惠小微贷款余额15.1万亿元，同比增长30.3%；2020年全年共支持经营主体3228万户，同比增长19.4%。

We will effectively stimulate the endogenous power of development in poor areas and explore diversified financial precision poverty alleviation practices according to local conditions. According to the effect of bringing poverty and benefiting poverty in poor areas, we will innovate products and services according to local conditions to form a mechanism of "allowing banks to make profits, enterprises to drive and poor households to benefit" to enhance the carrying capacity of financial resources. Since 2016, nearly 3 trillion yuan of loans to the poor and 4 trillion yuan of industrial precision poverty alleviation loans have been issued, supporting more than 90 million poor people. Since the epidemic, the People's Bank of China has used a series of monetary policy tools at different levels and in a gradient manner, and has created two direct monetary policy tools, namely, the Pratt & Whitney Small and Micro Enterprise Loan Extension Support Tool and the Pratt & Whitney Small and Micro Enterprise Credit Loan Support Plan, which have effectively eased the financial difficulties of small and micro enterprises. By the end of 2020, Pratt & Whitney's balance of small and micro loans was 15.1 trillion yuan, up 30.3% year on year. In 2020, a total of 32.28 million business entities were supported, up 19.4% year on year.

加强多元化金融支持和金融扶贫领域风险防范。一方面，创新差异化金融产品服务，加大扶贫小额信贷、创业担保贷款、助学贷款等的实施力度，创新易地扶贫搬迁专项金融债券、扶贫票据等多元化产品，满足贫困地区产业发展以及贫困人口创业就业就学等方面的金融需求；另一方面，协同多方构建金融扶贫风险防范、分担和补偿机制，规范以扶贫融资为名违规举债、“户贷企用”等行为，防止金融资金偏离政策目标，促进贫困地区经济金融实现可持续发展。

Strengthen diversified financial support and risk prevention in the field of financial poverty alleviation. On the one hand, we will innovate differentiated financial products and services, intensify the implementation of poverty alleviation micro-credit, venture guarantee loans, student loans, etc., and innovate diversified products such as special financial bonds and poverty alleviation bills for poverty alleviation and relocation, so as to meet the financial needs of industrial development in poor areas and poverty-stricken people in terms of entrepreneurship, employment and schooling. On the other hand, we will cooperate with various parties to build a risk prevention, sharing and compensation mechanism for financial poverty alleviation, standardize illegal borrowing in the name of poverty alleviation financing, and "household loans for enterprises" and other acts, prevent financial funds from deviating from policy objectives, and promote the sustainable development of economy and finance in poor areas.

持续以科技手段推动移动支付便民工程不断向县域乡村下沉。中国普惠产品体系日渐多元，普惠金融服务对象也开始从原来的金融扶贫扩大到小微企业、“三农”客户等，移动支付服务也进一步覆盖至农村地区，农村地区移动支付业务也呈现迅速增长态势。与此同时，农村地区支付服务数字鸿沟等问题，也在一定程度上有所缓解，银行网点乡镇覆盖率进一步提高。

We will continue to use scientific and technological means to push forward the mobile payment convenience project and continue to sink to counties and villages. China's Pratt & Whitney product system is increasingly diversified. Pratt & Whitney's financial service target has also begun to expand from the original financial poverty alleviation to small and micro enterprises and "three rural" customers. Mobile payment services have also further covered rural areas, and mobile payment services in rural areas are also showing a rapid growth trend. At the same time, problems such as the digital divide in payment services in rural areas have also eased to a certain extent, and the coverage rate of bank outlets in villages and towns has further increased.

增强金融服务普惠性，形成具有中国特色的金融精准扶贫经验

Strengthen the inclusiveness of financial services and form a financial precision poverty alleviation experience with Chinese characteristics.

中国金融精准扶贫模式不仅形成了全方位、系统性的金融支持体系，还通过牢牢把握“精准识别扶持对象、精准定位扶贫主体、精准实施帮扶手段”的原则，以市场需求为导向，因时因势因地制宜地创新金融扶贫政策工具，积极推进农村金融改革发展，满足贫困人口多元化的金融需求，形成具有中国特色的金融精准扶贫经验。

China's financial precision poverty alleviation model has not only formed an all-round and systematic financial support system, By firmly grasping the principle of "accurately identifying the support objects, accurately positioning the poverty alleviation subjects and accurately implementing the assistance means", Guided by market demand, we should innovate financial poverty alleviation policy tools according to the times and local conditions, actively promote the reform and development of rural finance, meet the diversified financial needs of the poor, and form a financial precision poverty alleviation experience with Chinese characteristics.

尊重市场规律，构建金融支持长效机制。在中国人民银行副行长潘功胜看来，由于在资金来源、运作方式等方面的差异，金融扶贫与财政等其他扶贫开发方式相比，更加注重在稳增长的基础上防风险。

Respect market laws and build a long-term mechanism for financial support. According to Pan Gongsheng, deputy governor of the People's Bank of China, financial poverty alleviation pays more attention to preventing risks on the basis of stable growth than other poverty alleviation and development methods such as finance due to differences in sources of funds and operation methods.

中国人民大学中国普惠金融研究院研究员顾雷认为，中国各金融机构充分发挥市场在金融资源配置中的决定性作用的同时，积极把握贫困地区经济发展的市场规律，以“保本微利”和“可持续”原则，结合贫困群众实际资金需求、产业项目情况和还款能力，因地制宜提供支持，有效防止片面追求贷款规模造成违规举债、过度负债等现象，形成真正可持续的金融支持长效机制。同时，进一步通过深化农村金融改革，有效发挥差别存款准备金率、再贷款、再贴现等货币政策工具的激励撬动作用，引导金融资金由“大水漫灌”转为“精准滴灌”，提高金融资源配置效率。

Gu Lei, a researcher at Renmin University of China's China Institute of Inclusive Finance, believes that While giving full play to the decisive role of the market in the allocation of financial resources, Actively grasp the market laws of economic development in poor areas, Based on the principles of "guaranteed capital and low profit" and "sustainability", and in combination with the actual capital needs, industrial projects and repayment ability of the poor, support is provided according to local conditions to effectively prevent illegal borrowing and excessive debt caused by one-sided pursuit of loan scale, thus forming a truly sustainable long-term mechanism for financial support. At the same time, by further deepening the rural financial reform, we will effectively play the incentive and leverage role of monetary policy tools such as differential deposit reserve ratio, refinancing and rediscount, so as to guide financial funds from "flood irrigation" to "precise drip irrigation" and improve the efficiency of financial resource allocation.

完善融资配套机制，构建金融服务乡村振兴的可持续运作模式。在顾雷看来，中国人民银行通过更好地发挥金融与财政、农业农村、乡村振兴等部门的工作合力，发挥金融与财政、农业农村、乡村振兴等部门的工作合力，通过推动搭建金融支持农业产业对接平台，加大财政奖补政策支持力度，打通金融支农政策落实落地的堵点、难点，提高金融机构开展涉农信贷业务的积极性和服务能力，强化涉农金融风险防控，充分发挥全国农业信贷担保体系、国家融资担保基金作用，深化银担合作，持续提升农业保险保障水平，坚决杜绝系统性金融风险底线。

We will improve the supporting financing mechanism and build a sustainable operation mode for financial services to revitalize the countryside. In Gu Lei's view, The People's Bank of China will make full use of the joint efforts of the financial and financial departments, the agricultural and rural areas, and the rural revitalization departments. Give full play to the joint efforts of finance and finance, agriculture and rural areas, rural revitalization and other departments, By promoting the establishment of a docking platform for financial support to the agricultural industry, We will step up support for the financial award and subsidy policy. We will open up the blocking points and difficulties in the implementation of the financial support for agriculture policy. We will improve the enthusiasm and service ability of financial institutions to carry out agricultural credit business, strengthen the prevention and control of agricultural financial risks, give full play to the role of the national agricultural credit guarantee system and the national financing guarantee fund, deepen bank-to-bank cooperation, continuously improve the level of agricultural insurance protection, and resolutely put an end to the bottom line of systemic financial risks.

深化金融扶贫多方协作，为贫困地区提供高质量金融服务。顾雷表示，中国人民银行不仅充分调动各方资源，形成跨地区、跨部门的多元化金融扶贫体系，还进一步强化政府性融资担保公司对扶贫信贷的风险分担能力，加大扶贫贷款贴息力度，降低融资成本，通过加强各方在信息共享、政策制定、创新发展等方面的协调联动，为金融机构扶贫项目遴选以及风险管理提供便利条件。同时，牵头22家中央金融单位定点扶贫，把定点扶贫“责任田”打造成“示范田”，形成金融行业扶贫和定点扶贫良性互动、相互助力的良好格局。

We will deepen multi-party cooperation in financial poverty alleviation and provide high-quality financial services to poor areas. Gu Lei said, The People's Bank of China has not only fully mobilized resources from all sides, We will form a diversified financial poverty alleviation system across regions and departments. It has also further strengthened the risk-sharing ability of government financing guarantee companies for poverty alleviation loans, increased discount interest on poverty alleviation loans, reduced financing costs, and provided convenient conditions for the selection of poverty alleviation projects and risk management of financial institutions by strengthening coordination and linkage among all parties in information sharing, policy formulation, innovative development, etc. At the same time, 22 central financial institutions have been led to help the poor at designated points, turning the designated "responsibility fields" for poverty alleviation into "demonstration fields", forming a good pattern of benign interaction and mutual assistance between poverty alleviation in the financial industry and designated poverty alleviation.

为国际社会输出中国精准减贫模式

Exporting China's Precision Poverty Reduction Model to the International Community

从精准识贫、建档立卡，到减贫路径由“大水漫灌”转为“精准滴灌”，再到减贫模式从“输血”转为“造血”，中国通过产业扶贫、生态扶贫、教育扶贫等一系列精准措施，提升了减贫的整体效能，为中国摆脱贫困的精细有力的抓手。包括联合国秘书长古特雷斯、世界银行前行长金墉、亚洲开发银行东亚局局长詹姆斯·林奇、联合国开发计划署驻华代表白雅婷等国际专家均表示，中国的精准扶贫方式为人类减贫探出新路子，对其他国家来说是一个值得学习的经验。

From accurate poverty identification and filing cards, to the transformation of poverty reduction path from "flood irrigation" to "precise drip irrigation", and to the transformation of poverty reduction model from "blood transfusion" to "hematopoiesis", China has improved the overall efficiency of poverty reduction through a series of precise measures such as industrial poverty alleviation, ecological poverty alleviation and educational poverty alleviation, thus providing a fine and powerful starting point for China to get rid of poverty. International experts, including UN Secretary General Guterres, former World Bank President Jin Yong, Asian Development Bank East Asia Bureau Director James Lynch, and United Nations Development Programme Representative in China Bai Yating, all said that China's precise poverty alleviation method has explored new ways for human poverty reduction and is a worth learning experience for other countries.

事实上，在国际扶贫行动中，中国的精准扶贫经验正在发力。中国国务院新闻办公室发布的《人类减贫的中国实践》白皮书显示，在亚洲，中国与东盟国家共同开展乡村减贫推进计划；在非洲，中国开展基础设施建设和农业、医疗等技术合作援助项目；在拉美，中国援建农业技术示范中心，帮助受援国当地民众摆脱贫困。

In fact, in the international poverty alleviation campaign, China's precise poverty alleviation experience is exerting its power. The White Paper "China's Practice of Human Poverty Reduction" released by the Information Office of the State Council of China shows that in Asia, China and ASEAN countries jointly carry out rural poverty reduction promotion plans. In Africa, China has carried out infrastructure construction and technical cooperation assistance projects such as agriculture and medical treatment. In Latin America, China has built agricultural technology demonstration centers to help local people in recipient countries get rid of poverty.

随着中国专家带着思路、方法和技术走向全球，不少国家和地区的人民得到了实实在在的好处，商务部国际贸易经济合作研究院世界经济研究所副研究员王宁表示，中国减贫方略通过建立中央统筹、省负总责、县乡村抓落实的特色体制，利用政府建立的全国扶贫信息系统数据库，通过在贫困地区加大教育和职业培训帮扶力度，从源头促进发展，实现精准减贫，创造性地解决了“扶持谁、谁来扶、怎么扶、如何退”的核心问题，对国际相关地区，尤其是“一带一路”相关国家及地区提供可借鉴经验。

As Chinese experts go global with ideas, methods and technologies, People in many countries and regions have gained tangible benefits, Wang Ning, an associate researcher at the World Economic Research Institute of the Institute of International Trade and Economic Cooperation of the Ministry of Commerce, said that China's poverty reduction strategy has been implemented through the establishment of a characteristic system with the central government as a whole, the provinces taking overall responsibility and the counties and villages grasping the implementation. Using the National Poverty Alleviation Information System database established by the Government, By increasing education and vocational training assistance in poor areas, we have promoted development from the source and achieved accurate poverty reduction. We have creatively solved the core problem of "who to support, who to help, how to help and how to retire" and provided reference experience for relevant international regions, especially relevant countries and regions in "the Belt and Road Initiative".

（原标题：金融精准扶贫：构建完善体系 形成中国特色经验）

(Original Title: Financial Precision Poverty Alleviation: Building a Perfect System to Form Experience with Chinese Characteristics)