英国布里斯托大学 (University of Bristol):中国农村信用社信贷农发基金项目的推动及遇到的问题

10. Since the mid-1990s, RCC Unions (RCCUs) with status as legal persons have also been established at the county level. Township level RCCs are members of the county-level RCCU, which provides clearing house facilities, plans and supports staff training for member RCCs and carries out inspections and annual audits of member RCCs. 乡镇级农村信用社为县级联社的成员，为信用社成员提供清除房屋设施，计划和支持员工培训，并开展对信用社成员的检查机年度设计。 11. The use of RCCs as a credit-de livery mechanism in IFAD projects has been growing, though a number of issues have been encountered:


(a) The PMOs regarded RCCs as weak and risky in terms of the recovery of the IFAD project resources provide d to them.
(b) The PMOs were very reluctant to transfer responsibilities to RCCs, as they were afraid of losing control.
(c) The RCCs were not given the autonomy of an independent bank as they mostly served clients that were proposed to them by the PMOs, thus increasing their own risk.
(d) The aggregate of the transaction commissions and charges at the provincial, prefecture and county levels rendered IFAD funds unattractive to and expensive for the RCCs up to the end of 2001, when the Ministry of Finance decided to extend IFAD loan funds to the province level at concessional terms.


农村信用社信贷农发基金项目交付机制的使用已经越来越大，虽然也遇到了一些问题： 12. In 2000, the IFAD Office of Evaluation and Studies undertook a thematic study on rural finance that assessed both project managed credit (through PMOs and the Finance Bureaux) and RCC operations. The conclusions of the study were discussed at a meeting among the Ministry of Agriculture, the Ministry of Finance, the PBC http://ukthesis.org/ygsslwdx/ and IFAD, at which the recommendation was adopted that RCCs would be the main channels for the disbursement of IFAD funds allocated as credit and that IFAD would support the Government in restructuring the RCCs so as to render them cost effective and sustainable instruments, thereby emphasizing their potential in poverty alleviation. 在2000年，农发基金评价和研究办公室对农村金融进行专题研究，评估了项目管理的信贷（通过办和财政局）和农村信用社操作。 13. Subsequently, the Rural Finance Sector Programme(RFSP) was developed by IFAD in close collaboration with the PBC, the Ministry of Finance and the Ministry of Agriculture. The RFSP proposal was prepared during 2002 for further consideration by the Ministry of Finance and the PBC. 农村财政分部规划处建议准备在2002年由财政部和中国人民银行作进一步审议。 14. Two major considerations form the rationale for the RFSP: 形成农村财政分部规划处的两个主要考虑因素 (a) The RCCs constitute very important suppliers of financial services in rural areas and possess the most extensive network and outreach capacity through credit officers who provide services at the farmgate. Previous operations and present policies, however, have jeopardized the sustainability of the RCCs. The Government is therefore considering the development and implementation of a policy reform programme for the RCCs, and some reforms are already being tested at a pilot scale. 因此，政府正在考虑对农村信用社的政策改革方案进行制定和实施，并在试点规模测试进行一些改革。 (b) IFAD’s 2000 thematic study on rural finance confirmed the Fund’s strategy to provide loans to rural poor through the RCCs. It also recognized that policy changes were needed so that the RCCs could play an important role in future IFAD projects. 15. Within the framework of the rural finance reform process guided by the CBRC since 2003, the RFSP http://ukthesis.org/ygsslwdx/ aims to support the Government in redefining the policies of RCCs and taking into account their impact on both poverty reduction and institutional sustainability. It also aims to demonstrate the usefulness of microfinance for poverty reduction. In supporting policy reform, the RFSP will focus on lending policies that allow increased access among the rural poor to RCC lending and on institutional and operational policies that will enhance the efficiency of the cooperative banking system. Hence, it will contribute to the financial sustainability of these institutions. 在支持政策改革方面，农村财政分部规划处将集中于贷款政策，允许增加农村贫困人口的农村信用社贷款和合作银行系统，这将提高体制的效率和业务政策。因此，这将有助于这些机构的财务可持续性。 16. The RFSP thus follows up on the strategy to foster policy dialogue as proposed under IFAD’s country strategy document of 1999 and is in line with a strategic objective of IFAD, namely, to enable the rural poor to overcome their poverty by increasing their access to financial services and markets. The RFSP will also enhance IFAD’s catalytic impact by “helping to establish institutional and policy frameworks in support of the poor”. Moreover, it represents the realization of aspects of IFAD’s strategy for Asia and the Pacific region, which announced a shift in emphasis towards projects and programmes that have the strategic potential to influence policies. 此外，它代表农发基金亚洲和太平洋地区的战略，宣布将重点对影响政策的战略潜力的项目和方案方面的实现。 17. The goal of the RFSP is to render rural financial services capable of contributing effectively and in a sustainable manner to poverty reduction. The specific objectives of the RFSP are to ensure that: 农村财政分部规划处的具体目标，以确保以下内容： (a) rural households, including the poor, have better access to financial services and effectively make use of them to improve their living standards; (b) RCC policy reforms have been successfully tested and are implemented in ongoing IFAD/WFP-funded projects, as well as in future interventions; RCC政策改革已经成功测试并实施持续农发基金/世界粮食计划署资助的项目，以及在未来的干预; (c) improved institutional and operational management capacities in RFSP RCCs are applied on a larger scale and help enhance cost effectiveness and profitability; and RFSP农村信用社改善体制及经营管理能力应用在更大的规模，有助于提高成本效益和盈利能力; (d) modalities for the solution of the problem of non-performing loans have been tested and are applied on a wider scale. 为解决不良贷款问题的方式已经测试过，并适用于更广泛的规模。