The wealthier Chinese provinces are often paired with the less developed provinces and counties in poverty alleviation and disaster relief as was done for example after the 2008 For Sichuan earthquake. This is called counterpart assistance duìkǒu zhīyuán 对口支援. When I visited Nyingchi/Linzhi, Tibetan Autonomous Region circa 2010, I met officials from Fujian Province who had been seconded to the Linzhi City government (one was serving as a Vice Mayor) to help the local government. Fujian funded and Fujian companies were building infrastructure projects in the Nyinchi/Linzhi area. This development assistance pattern is also used in some of China’s foreign assistance programs in which Chinese provinces are paired with some countries in Africa. For example Aid Africa Medical Assistance Teams from Chinese provinces are assigned to certain African countries. For example, Medical Assistance Teams from Sichuan Province are regularly dispatched to Mozambique and Guinea Bissau. When I worked at the US Consulate General in Chengdu I heard about the intensive Portuguese language training course held at Sichuan University to prepare medical teams about to go to Mozambique and Guinea Bissau.
Shanghai Municipality, as one of China’s richest regions, provides assistance to some of the poorer counties in Xinjiang, Tibet, Qinghai, Guizhou, Hubei, Chongqing and Yunnan.
The report below to the Standing Committee of the Shanghai People’s Congress details some of Shanghai Municipality’s assistance programs.
China has been spending vast amounts of money on rural development in western China and improving the lives of people living in the countryside. Western China, an expansive term in practice since less developed areas in the center and east central parts of China also vie for assistance, includes naturally the western third of the country where minorities are the majority in many areas. Development assistance including building roads and improving the housing of the population also has a political dimension for example as new housing in Tibetan areas is often close to new roads with better access to local government rather then clustered near monasteries since one of the goals of development work is to strengthen ties of minority people to the Communist Party and the government.
To the translation below I have added italics, bolding and explanatory notes and broken some very long paragraphs into separate paragraphs to improve readability.
Report on Shanghai Municipality’s China East-West Cooperation and Counterpart Support
published March 17, 2023
— October 27, 2022 at the 45th Meeting of the Standing Committee of the 15th Shanghai Municipal People’s Congress
Pan Xiaogang, Director of the Cooperation and Exchange Office of the Shanghai Municipal People’s Government
Director, Deputy Director, Secretary General and Members:
Entrusted by the municipal government, I would like to report to the Standing Committee of the Municipal People’s Congress on the work of China East-West Cooperation and Counterpart Support (hereinafter referred to as counterpart support) as follows:
The 19th Party Congress made the deployment of precise poverty eradication as one of the three major battles. Counterpart support to Kashgar and Karamay in Xinjiang, Shigatse in Tibet, Goluo in Qinghai in Yunnan, Zunyi in Guizhou, Yichang Yiling in Hubei and Wanzhou in Chongqing is a historical responsibility and glorious mission given to Shanghai by the central government. [Translator’s note: assistance to Yunnan and Qinghai also mentioned below.] The current government’s counterpart assistance work has gone through two stages, and the goal of the work is to help the counterpart regions win and fight the battle against poverty, and realize the effective connection between consolidating and expanding the results of poverty eradication and rural revitalization. We resolutely implement a series of important instructions from General Secretary Xi Jinping and the central decision and deployment, and make every effort to sustain the attack and make every effort to promote the implementation of the work.
First, resolutely implement the central decision and deployment, and promote counterpart support work with high quality
Taking “Accomplish the Tasking from the Center, Consider Local Needs and Shanghai’s Capacity” the basic principle, combine workforce, organizational security, planning and implementation, project construction, etc.,to achieve the combination of the overall promotion of counterpart support work to achieve phased results.
(A) The Chinese Communist Party Central Committee and General Secretary Xi Jinping’s precise poverty alleviation strategy in Shanghai has been fully implemented. The Shanghai Municipality Communist Party Committee and the Shanghai Municipality government both highly value the work of counterpart support, and take helping counterpart areas win the battle against poverty and promote rural revitalization as a concrete practice to enhance the “Four Consciousnesses“, affirm the “Four Self-Confidences” and realize the “Two Safeguards.”
[Note:
- “The Four Consciousnesses” sige yishi 四個意識 enhance political integrity, develop a better understanding of the general picture, follow the core leadership of the Central Committee, and act consistently with Chinese Communist Party Central Committee policy.
- “The Four Self-confidences” sige zixin 四個自信“confident in our chosen path, confident in our guiding theories, confident in our political system, and confident in our culture.”
- “The Two Safeguards” liangge weihu 兩個維護 “‘Safeguard the core position of the Xi Jinping-led Party Central Committee and at the core position of the whole party’ and ‘Safeguard the authority of the Party Central Committee and centralized and unified leadership’” End note.]
We take it as our duty to help solve the problems that the local people think and expect. The main leaders of the municipal party committee and the municipal government personally get involved, every year held the standing committee of the Shanghai Municipal Communist Party Committee, the executive meeting of the municipal government, and the plenary meeting of the city’s counterpart support and cooperation and exchange work of the State Council Leading Group on this matter, timely convey and study the implementation of General Secretary Xi Jinping’s series of important statements on poverty alleviation work, study and promote the implementation of the Party Central Committee and the State Council’s major deployments, consider and decide the important matters of the city’s counterpart support work. The municipal party committee and the main leaders of the municipal government have led teams to the counterpart support areas to do research and check-ups every year. The municipal party committee and municipal government have issued “Opinions on further deepening the work of East-West cooperation in poverty alleviation” “Promoting the Success of the Three-year Poverty Alleviation Action Plan” and other documents to coordinate and promote the work of counterpart support.
The Shanghai Municipality People’s Congress is also very concerned about the work of counterpart support, every year, the Municipality ‘s counterpart support and cooperation and exchange of special funds budget to give strong support, the main leaders led many times to the counterpart support areas to guide the work. According to the decision of the Party Central Committee, from 2021, the focus of the counterpart support work shifted from helping to fight poverty to consolidating and expanding the results of poverty eradication and rural revitalization. Based on the orderly promotion of the optimization and adjustment of the twinning relationship, the municipal Party committee and the municipal government issued the “Implementation Opinions on Helping Counterpart Areas Achieve Effective Convergence in Consolidating and Expanding the Results of Poverty Eradication and Rural Revitalization“, which opened a new stage of counterpart support work.
(B) Concentrate efforts to help counterpart areas in order to win the battle against poverty. During the fight against poverty, focus on solving the outstanding problems of “Two Guarantees and the Three Guarantees”, adhere to the help funds and projects down to poor counties, down to poor villages, bound to poor households, focusing on deep poverty areas and the front line of the fight against poverty.
[Note: 两不愁三保障 “The ‘Two Guarantees’ refer to the guarantee of adequate food and clothing, while the ‘Three Guarantees’ encompass compulsory education, basic medical care, and housing security. In November 2011, General Secretary of the Communist Party of China, President of the People’s Republic of China, and Chairman of the Central Military Commission, Hu Jintao, convened the Central Conference on Poverty Alleviation and Development in Beijing, where he outlined a ten-year plan for poverty alleviation and development. It was explicitly stated that by 2020, efforts should be made to ensure that the impoverished population no longer suffer from food and clothing shortages and that their access to compulsory education, basic medical care, and housing would be guaranteed. This objective was established by the central government. In December of the same year, the Communist Party of China Central Committee and the State Council issued the ‘Outline of Poverty Alleviation and Development in Rural Areas of China (2011-2020)’ (referred to as the ‘Poverty Alleviation and Development Outline’), which consists of the ‘Two Guarantees’ and ‘Three Guarantees’ as integral components in achieving a comprehensively well-off society by 2020.” End note. ]
Focusing on solving the outstanding problems of compulsory education, basic medical care, housing safety and drinking water safety at the grassroots level, we help more than 1,400 medical institutions and 1,800 schools at the city, county and township levels in the counterpart areas, and help Kashgar Second Hospital and Rikaze People’s Hospital to become third-class hospitals by vigorously carrying out “group-type” talent support. By the end of 2020, all 98 national poverty-stricken counties in the 7 provinces and 20 municipalities supported by the counterpart were lifted out of poverty on schedule, and more than 9.09 million poor households were lifted out of poverty. Since 2017, Shanghai has received “good overall evaluations” in the national assessment of China East-West poverty alleviation collaboration, and ranked first in the assessment of the effectiveness of counterpart support.
The practice of 34 tertiary hospitals in Shanghai to help 34 county hospitals in Yunnan by twinning with “organizing groups to join forces” has been commended by the state, Shanghai’s group education support has been commended by the Ministry of Organization, and the “Shanghai 121 Consumption Collaboration Map” has been rated by the National Development and Reform Commission as the national consumption support for rural revitalization in 2021.
[Note: From 上海消费帮扶成绩单出炉 超130亿元创历史新高 According to incomplete statistics, Shanghai has sold more than 13 billion yuan of consumer support products in central and western regions during 2021, including 5.37 billion yuan of consumer support products in Yunnan, exceeding the annual target and reaching a record high. Shanghai’s consumer support network has built 19 “100 counties and 100 products” direct stores, 21 consumer support life halls, and more than 150 consumer support counters, and the “Shanghai Cooperation 121 Consumer Collaboration Map” was named by the National Development and Reform Commission as a national consumer support project in 2021. The “Shanghai Collaboration 121 Consumer Collaboration Map” was named by the National Development and Reform Commission as the 2021 national outstanding typical case of consumer consumption support for rural revitalization. End note.]
“Ten years of deep development work on the southern border to help consumption support” and “Guangfeng Guangnan cattle’ of southern Yunnan Province storm into the Shanghai market” were selected by the Shanghai aid cadres as typical cases of national consumption support to help rural revitalization in 2021.” It was shortlisted as a typical case of national consumption support for rural revitalization in 2021; Shanghai’s practice of leading social organizations to help each other was exchanged in relevant meetings of the Ministry of Civil Affairs and the National Rural Revitalization Bureau, and Shanghai’s practice of helping the Three Gorges Reservoir Area was affirmed by the leaders of the Ministry of Water Resources. At the National Commendation Conference on Combating Poverty held in February 2021, 33 individuals and 25 collectives in Shanghai were honored by the Party Central Committee and the State Council; at the Summary Commendation Conference of Shanghai on May 20 of the same year for helping to combat poverty, 70 individuals and 50 collectives were honored by the Municipal Party Committee and the Municipal Government.
(C) Promoting the sustainable development of counterparts to help the region, the steadily increasing endogenous power. Insist on cultivating the “strengthening local capacity” function as fundamental, implement the combination of poverty alleviation and wisdom and will, fully exploit the potential of the counterpart areas in agriculture, culture and tourism, and make use of the Municipality’s special capacities in science and technology, capital, information and market to vigorously carry out industrial, employment, consumption and intellectual support work, and continuously enhance counterparts. The Municipality will continue to enhance the sustainable development capacity of the counterpart areas and promote rural revitalization to open up new innings.
First, strengthening industrial assistance. . The office of the leading group for coordinating support and cooperation in paired-assistance work, jointly with municipal state-owned assets, the Federation of Industry and Commerce, and other departments, organizes the precise assistance action of “Pairing 100 Villages with 100 Enterprises” and the action of “Ten Thousand Enterprises Assisting Ten Thousand Villages.” It guides our city’s state-owned assets and private enterprises to focus on the target of “three belts and two transformations,” and focuses on supporting the leading industries, traditional industries, and emerging industries in the paired-assistance areas, establishing bases and industrial parks. It gives key support to characteristic industries such as coffee, ethnic handicrafts, fruits and vegetables, and meat processing, actively promotes cooperation with Yunnan’s “1+16+N” industrial parks, guides companies to invest over 60 billion yuan in local areas, and establishes 39 extended production bases in the paired-assistance areas which not only promote local farmers’ sustainable income, but also enrich the food baskets of Shanghai citizens.
Secondly, deepening employment assistance. The municipal department of human resources and social security, in conjunction with relevant policies, supports the implementation of labor skills training, job stability subsidies, intermediary service subsidies, subsidies for migrant workers, and the development of public service positions in the paired-assistance areas. This helps more than 800,000 people find employment locally and overcomes the impact of the epidemic by taking active and effective measures to stabilize employment.
Thirdly, expanding consumption assistance. Jointly with municipal state-owned assets, finance, the All-China Federation of Trade Unions, commerce, and other departments, implementation plans have been issued to deepen consumption-oriented poverty alleviation actions and support the decisive battle against poverty through enhancing consumption. A comprehensive platform for consumption assistance work has been established citywide. Cooperation with the municipal commerce and other departments has led to the establishment of 40 city-level hub-type consumption assistance points, 253 counters and windows, and over 2,700 sales outlets in major supermarkets and retail stores. Jointly organized by various districts, state-owned assets, and enterprise groups, product exhibitions and sales events have been continuously held for the paired-assistance areas. Actions such as “One County, One Product” and “Dual-line Entry into Nine Places” have resulted in the sale of agricultural products worth over 30 billion yuan, helping to upgrade the production, circulation, and value chains of agricultural products in the paired-assistance areas.
Fourthly, optimizing intellectual assistance. The municipal organization department, together with the municipal department of human resources and social security, the education commission, the science and technology commission, and other departments, fully utilizes the advantages of our city in talents, technology, capital, information, and management. Efforts are made to strengthen the selection and dispatch of talents, optimize intellectual assistance measures, and dispatch nearly 4,200 professionals, including teachers, doctors, and flexible voluntary service personnel in the Silver Age Action, to provide training for about 400,000 personnel, including officials, teachers, doctors, and leading figures in poverty alleviation in the paired-assistance areas. The aim is to to build a resilient talent pool for local development.
Fifthly, Dovetailing with rural revitalization. In line with the principles of “industrial revitalization, talent revitalization, cultural revitalization, ecological revitalization, and organizational revitalization,” together with the paired-assistance areas, we have focused on creating a batch of rural revitalization demonstration sites, represented by Yadong County, Shigatse, Jinhu Yangchangshou Village in Zepu County, Kashgar, Banli Village in Lancang County, Puer, and Qiaquna Village in Gande County, Golog. We continue to consolidate the achievements of poverty alleviation and enhance the post-poverty development momentum in these areas. Additionally, in collaboration with the municipal agricultural and rural affairs committee, we have organized grassroots cadres and leading figures in poverty alleviation from the paired-assistance areas to visit and learn from rural revitalization demonstration sites in Shanghai and the Yangtze River Delta region. This promotes the replication and popularization of Shanghai’s experience in rural revitalization in the paired-assistance areas. In August 2021, General Secretary Xi Jinping personally replied to ten former party secretaries from border villages in Cangyuan County, Yunnan, expressing satisfaction with the profound changes brought about by the poverty alleviation efforts and encouraging them to continue promoting rural revitalization, border development, building beautiful hometowns, safeguarding ethnic unity, and protecting the sacred land of our nation.
(D) Promote deep and solid progress in ethnic unity. Adhering to the main line of strengthening the sense of community for the Chinese nation, continuously promote extensive interaction, comprehensive communication, and deep integration among various ethnic groups.
Firstly, multi-level personnel exchange. By utilizing forms such as training programs in Shanghai, providing on-site education, undertaking temporary positions for learning, and organizing local training classes, we have established talent development mechanisms such as “teams leading teams,” “experts mentoring key personnel,” and “masters mentoring apprentices.” These initiatives have trained over 210,000 individuals, including party members, professionals, and rural leaders, from the targeted areas. We vigorously promote activities like “bringing visitors to Kashgar,” “bringing visitors to Tibet,” and “bringing visitors to enjoy fruits,” opening up charter flights and special tourist trains, guiding millions of Shanghai residents to visit and experience the targeted areas for tourism and sightseeing.
Secondly, diversifying cultural exchange. We organize Shanghai-branded programs such as “We Are Taking Action,” “Extreme Challenge,” “Children’s World,” and “Mamma Mia” to be recorded in the targeted areas. Collaborating with the targeted areas, we create cultural works such as documentaries like “The Legend of Kashi” and “Ye’erqiang River” and theme concerts like “From the Yellow River to the Yangtze River” to comprehensively promote the excellent cultural history and tourism resources of the targeted areas. We have hosted over 200 cultural exchange performances between Shanghai and the targeted areas, invited professional performance troupes such as Shanghai Conservatory of Music, acrobatic troupes, ballet troupes, Peking Opera troupes, and Kunqu Opera troupes to perform in the targeted areas. We have also invited performers from the Twelve Mukams of Kashi, Rikaze Jiongba Tibetan Opera, Lazi Duixie, Guoluo Banma Guozhuang Dance, and Gesar culture to tour and perform in Shanghai, facilitating the comprehensive exchange and mutual learning of Chinese traditional culture and outstanding cultures of various ethnic groups.
Thirdly, we achieve full coverage in paired assistance. We strengthen multidimensional exchanges and interactions with the targeted areas and extensively implement the “village-enterprise pairing action” at both the municipal and district levels. Emphasizing the connotation of “three supports and two transformations” (supporting people, supporting resources, supporting industries, transforming mindsets, and transforming village appearances), we mobilize various types of state-owned enterprises, private enterprises, and foreign enterprises in Shanghai to actively participate in activities like striving for a better life. We have organized more than 8,000 pairs of villages, pairs of village-enterprises, and pairs of schools and hospitals, further consolidating the assistance relationships.
Fourthly, we actively mobilize social participation. We mobilize and guide various social organizations, such as the Shanghai Charity Foundation, China Welfare Lottery Charity Fund, and True Love Dream Public Welfare Fund, to participate in the paired assistance work. We have created brand public welfare projects like “Little Poplar Tree,” “Love for Gesang Flowers,” “Xueyuqing • Guangmingxing,” “Dream House on the Roof of the World,” and “Longhu Xinya Project.” These initiatives have donated various materials and raised over 300 million yuan in social funds for the targeted areas, conveying the warmth of Shanghai and creating a strong atmosphere of ethnic unity and integration. At the same time, we actively guide and rally the participation of various sectors of society in the paired assistance, leveraging over 280 million yuan in social investment. The project covers multiple fields such as medical aid, educational support, assistance to the disabled and impoverished, livelihood security, and safe drinking water. This approach not only maximizes the benefits of limited resources but also harnesses a powerful collaborative force of mutual assistance and solidarity. In recent years, we have also intensified media coverage and theoretical discussions to tell the story of Shanghai’s poverty alleviation efforts, sharing the “Shanghai chapter” and the “Shanghai experience” in poverty alleviation in China. We have implemented a series of thematic campaigns such as “Achieving Comprehensive Well-off, Fighting Poverty Alleviation,” “Comprehensive Well-off, Happiness Together,” and “New Era, New Love for the Village, Connected Hearts,” creating a strong atmosphere of collective participation in paired assistance work throughout society.
(E) Use the Municipality leadership system to coordinate and promote the continuing consolidation of the mechanisms of joint management. Adhere to the party’s leadership of the counterpart support work, and constantly improve the Municipality’s counterpart support and cooperation and exchange work leading group work system.
- First, we are establishing a unified and coordinated approach throughout the city. Relevant policies have been introduced to promote the unity of the whole city. All 16 districts and major functional departments have actively formulated supporting policies, conducted on-site visits and research for coordination, and ensured that all 42 municipal state-owned enterprise groups participate in paired assistance to achieve full coverage.
- Second, we consistently adhere to planning guidance. Based on task transitions and actual needs, we have completed the mid-term evaluation and project adjustment of the “13th Five-Year Plan” for Shanghai’s paired support to Tibet, Xinjiang, Qinghai, Yunnan, and other regions. We have taken the lead in formulating the “14th Five-Year Plan” for Shanghai’s paired support to Tibet, Xinjiang, Qinghai, Yunnan, and other regions. We have also developed three-year action plans for specific regions, and jointly formulated annual plan proposals and special cooperation agreements with the recipient regions and front line work institutions to ensure that paired assistance work follows rules and procedures.
- Third, we standardize fund and project management. We improve the norms for planning guidance, fund supervision, project management, performance evaluation, and oversight audits, with particular emphasis on fund and project management as a top priority in paired assistance work. Based on the actual situation of the recipient regions, we jointly develop project management methods with the local governments, clarifying the procedures for planning and project application. We also work with relevant local departments to establish measures for surplus funds, project reserves, fund disbursement, and third-party management, promoting governance through institutional mechanisms and ensuring accountability through institutional measures. We strengthen the financial management of aid funds, implement the “dual countersignature” system for fund disbursement, and establish a closed-loop management for fund management, striving to fulfill responsibilities along with fund disbursement. We established and improved monthly progress reporting mechanisms, as well as forward-backward linkage analysis and tracking mechanisms, to ensure weekly progress, monthly targets, quarterly milestones, and annual goals.
Since the beginning of this year, Shanghai and the recipient regions have been affected by the epidemic to varying degrees. All parties in the city and the recipient regions have innovated methods and strengthened remote coordination to ensure the coordinated progress of epidemic response and assistance.
II. Considerations for the Next Stage of Work
We will resolutely implement the central decision-making and deployment, deepen the cooperation and support between the eastern and western regions, highlight the key areas of assistance, innovate assistance methods, and improve the effectiveness of assistance to ensure that there is no large-scale return to poverty and to assist the supported regions in comprehensively promoting rural revitalization.
(1) Adhere to the “Four No Reduction in Responsibilities” [See note below] and assist the supported regions in consolidating and expanding the achievements in poverty alleviation. Implement the central requirements of “four no removals” (no removal of responsibility after poverty alleviation, no removal of policies, no removal of assistance, no removal of supervision), promote a more solid poverty alleviation foundation and sustainable outcomes in the supported regions. First, maintain the same level of attention. Continue to play the coordinating role of the city’s leading group, with districts as the main body, municipal departments as important support, front-line agencies as key forces, and liaison offices as bridges, strengthen the city-wide coordination mechanism. Second, maintain the same level of investment. In accordance with the requirements of “maintaining two aspects,” focus on newly paired regions, key poverty alleviation counties for national rural revitalization, and key areas of work to ensure the quality and quantity of achieving the targets of assistance. Third, maintain the same level of target requirements. Based on the work approach of “strengthening industrial cooperation, strengthening consumption cooperation, and strengthening labor cooperation,” prioritize the consolidation and expansion of achievements in poverty alleviation, assist the supported regions in dynamic management and immediate assistance to vulnerable groups prone to returning to poverty, and firmly prevent large-scale returns to poverty. Fourth, maintain the same level of effectiveness in assistance. Adhere to the principle of “fulfilling commitments,” actively explore and innovate the monitoring mechanism for assistance projects, strengthen and optimize the responsibility system for assessment and evaluation, and continue to maximize comprehensive benefits.
(2) Fully implement the “Three Shifts“ [see note below] and support the comprehensive promotion of rural revitalization in the supported regions. In accordance with the central requirements of the “three shifts” in rural work (shifting the focus to all farmers, shifting the tasks to promote the “Five Major Revitalizations” in rural areas, and shifting the measures to promote development), better support the comprehensive promotion of rural revitalization in the supported regions. First, prioritize industrial revitalization. Improve the mechanism for corporate participation in assistance work with a market-oriented approach, support local efforts in scaling up operations, standardizing production, and building brands based on the development conditions and resource endowments of the supported regions. Deepen cooperation in industries, labor, consumption, and other areas to continuously increase local residents’ income. Second, strengthen key projects and demonstrations for rural development. Focus on the construction of beautiful villages, exemplary villages, and border areas reaching a moderately prosperous level. Tailor measures according to local conditions to comprehensively improve rural transportation, water supply, logistics systems, and living environments. Continuously create brands for rural revitalization and promote continuous progress in rural governance and cultural development in the supported regions. Third, deepen efforts to promote ethnic unity and common progress. Promote cultural integration through cultural immersion projects, engage in exchanges and interactions, and carry out initiatives such as “Joining Hands for Rural Prosperity.” Encourage partnerships between streets, towns, enterprises, hospitals, schools, and others, strengthen the “Five Identifications,” and continuously strengthen the sense of a community for the Chinese nation.
We should resolutely implement the central decision and deployment, deeply promote east-west collaboration and counterpart support, highlight the focus of help, innovate ways to help, enhance the benefits of help, ensure that there is no return to poverty in a large area, and help counterpart areas to comprehensively promote rural revitalization.
(3) Serve the Construction of a New Development Pattern, Collaboratively Creating a New Situation in Targeted Assistance Work. Actively adapting to new situations and tasks, and focusing on promoting regional coordinated development and serving the new development pattern, we will continuously improve the level of targeted assistance work.
- Firstly, we will facilitate economic circulation. Adhering to the decisive role of market allocation of resources, we will fully respect the laws of factor mobility and industrial development. Through exploring cooperative models such as “Shanghai Enterprises + Resources in Targeted Assistance Areas,” “Shanghai Research and Development + Manufacturing in Targeted Assistance Areas,” “Shanghai Market + Products from Targeted Assistance Areas,” and “Shanghai Headquarters + Bases in Targeted Assistance Areas,” we will achieve a high-level dynamic balance between supply and demand by creating supply to meet demand and demand to drive supply.
- Secondly, we will achieve two-way empowerment. We will closely integrate the advantages of distinctive agricultural products and resources in targeted assistance areas with Shanghai’s advantages in talents, capital, technology, market, and platforms. We will strengthen the links between factors, production capacity, markets, and rules with the targeted assistance areas. By supporting the active role of market entities, we will promote the orderly transfer of industrial projects and foster mutual benefits and common development between Shanghai and the targeted assistance areas.
- Thirdly, we will enhance open collaboration. Seizing the opportunities of jointly participating in the Belt and Road Initiative, building Yunnan into a center that radiates outwards towards South Asia and Southeast Asia. We will closely integrate the border opening advantages and inland opening advantages of targeted assistance areas with Shanghai’s global resource allocation capabilities and functions as an open hub. Facing emerging markets such as South Asia, Southeast Asia, and Central Asia, we will jointly play the roles of hub, platform, and channel, and achieve greater development in serving the overall national development.
In the current and future periods, targeted assistance work faces new situations, tasks, and requirements. We will continue to deeply implement the important instructions of General Secretary Xi Jinping and the decisions and arrangements of the Chinese Communist Party Central Committee. Focusing on preventing a return to poverty, sustainability, and a new starting point, we will take multiple measures to promote targeted assistance work and make new contributions to achieving higher-level regional coordinated development and actively serving the national development and building a new development pattern.
The above report is submitted for your deliberation.
[Note on the Four No Reduction in Responsibilities:
The contents of “Four No Reduction in Responsibilities” in poverty alleviation Legal Knowledge 脱贫四个不摘四个不减的内容 -法律知识–
Legal Analysis:
The top officials in poverty-stricken counties should maintain stability and ensure that their responsibilities are not removed when the poverty alleviation goals are achieved. The main policies for poverty alleviation should continue to be implemented without any removal when the poverty alleviation goals are achieved. The poverty alleviation work teams should not be withdrawn, and assistance should continue without any removal when the poverty alleviation goals are achieved. Prevention of falling back into poverty should be given importance, and supervision should continue without any removal when the poverty alleviation goals are achieved. “Four No Removals” refers to not removing the responsibility, policies, assistance, and supervision when poverty alleviation goals are achieved.
Legal Basis:
Article 1 of the “Work Plan for Establishing a Filing System for Poverty Alleviation and Development” states that the work objective is to establish a filing system for poverty alleviation and development that includes impoverished households, impoverished villages, poverty-stricken counties, and contiguous areas with severe poverty. Through the filing system, accurate identification of impoverished households and impoverished villages is conducted to understand their poverty conditions, analyze the causes of poverty, identify their assistance needs, determine the main actors in providing assistance, implement assistance measures, conduct assessments and evaluations, and establish dynamic management. Monitoring and evaluation are carried out for poverty-stricken counties and contiguous areas with severe poverty to analyze and grasp the progress of poverty alleviation and development work, providing a basis for decision-making and assessment of poverty alleviation and development. An electronic information archive for impoverished households, impoverished villages, poverty-stricken counties, and contiguous areas with severe poverty is established nationwide, and a “Poverty Alleviation Handbook” is distributed to impoverished households. Based on this, a national poverty alleviation information network system is constructed to lay the foundation for targeted poverty alleviation work.
End note.]
[Note on The Three Shifts:
【Top-level Design】 To engage private enterprises in the “Prosperous Villages through Thriving Enterprises” initiative, there needs to be a further shift in mindset:
First, the goal and task should shift from addressing the “Two Guarantees and Three Supports” to promoting comprehensive rural revitalization.
Second, the working approach should shift from focusing on individual households to driving regional development.
Third, the assistance measures should shift from primarily relying on government investment to achieving an organic combination of government and market forces.
【Guizhou】【Hubei】Continuing to do well in “agriculture, rural areas, and farmers” work and comprehensively promoting rural revitalization is crucial. The key points are:
First, the focus of work should shift to encompass all farmers.
Second, the task at hand should shift towards advancing the “Five Major Revitalizations” of rural industries, talents, culture, ecology, and organizations.
Third, the measures taken should shift towards promoting development.
【Sichuan】Accurately grasping the “Three Major Changes” in the situation and tasks:
First, the target of work should shift from assisting poverty-stricken populations to encompassing all farmers.
Second, the task at hand should shift from addressing the “Two Guarantees and Three Supports” to promoting comprehensive rural revitalization.
Third, the measures taken should shift from supporting poverty-stricken counties in poverty alleviation and hat removal to promoting development.
【Tibet】The shift in “position” and the transformation of the “battlefield” require changes in work approach, content, and direction:
First, the focus of work should shift to encompass all farmers and herdsmen.
Second, the task at hand should shift towards the “Five Revitalizations.”
Third, the measures taken should shift towards promoting rural development.
The 20-character guideline for rural revitalization is “Thriving Industries, Pleasant Ecology, Civilized Rural Life, Effective Governance, and Prosperous Livelihoods.” [End Note]
关于东西部协作与对口支援情况的报告
2023/3/17 13:27:18
——2022年10月27日在上海市第十五届人民代表大会常务委员会第四十五次会议上
上海市人民政府合作交流办公室主任潘晓岗
主任、各位副主任、秘书长、各位委员：
受市政府委托，现就东西部协作与对口支援（以下简称对口帮扶）情况，向市人大常委会报告如下：
党的十九大把精准脱贫作为三大攻坚战之一作出部署。对口帮扶新疆喀什和克拉玛依、西藏日喀则、青海果洛、云南、贵州遵义、湖北宜昌夷陵、重庆万州是中央赋予上海的历史责任和光荣使命。本届政府对口帮扶工作经历两个阶段，工作目标分别是助力对口帮扶地区打赢打好脱贫攻坚战，以及实现巩固拓展脱贫攻坚成果同乡村振兴有效衔接。我们坚决贯彻习近平总书记一系列重要指示精神和中央决策部署，尽锐出战、持续攻坚，全力抓好各项工作推进落实。
一、坚决贯彻中央决策部署，高质量推进对口帮扶工作
遵循“中央要求、当地所需、上海所能”基本原则，采取工作力量、组织保障、规划实施、项目建设等相结合，统筹推进对口帮扶工作取得阶段性成果。
（一）党中央和习近平总书记精准扶贫方略在上海得到全面贯彻。市委、市政府高度重视对口帮扶工作，将助力对口帮扶地区打赢脱贫攻坚战、推进乡村振兴作为增强“四个意识”、坚定“四个自信”、做到“两个维护”的具体实践，把帮助解决当地群众所思所盼利益问题当作“分内事”。市委、市政府主要领导亲力亲为，每年召开市委常委会、市政府常务会议、市对口支援与合作交流工作领导小组全体会议，及时传达学习贯彻习近平总书记关于扶贫工作的一系列重要论述，研究推进党中央、国务院有关重大部署的贯彻落实工作，审议决策我市对口帮扶工作重要事项。市委、市政府主要领导每年率队赴对口帮扶地区调研对接。市委、市政府先后出台《关于进一步深化东西部扶贫协作的工作意见》《助力打赢脱贫攻坚战三年行动计划》《加大消费扶贫行动助力脱贫攻坚》等文件，统筹推进对口帮扶工作。市人大也非常关心对口帮扶工作，对每年市对口支援与合作交流专项资金预算给予大力支持，主要领导多次率团赴对口帮扶地区指导工作。根据党中央决策部署，2021年起，对口帮扶工作重心由助力脱贫攻坚全面转向巩固拓展脱贫攻坚成果同乡村振兴有效衔接。在有序推进结对关系优化调整的基础上，市委、市政府印发《关于助力对口帮扶地区实现巩固拓展脱贫攻坚成果同乡村振兴有效衔接的实施意见》，开启新阶段对口帮扶工作新的征程。
（二）凝心聚力助力对口帮扶地区打赢脱贫攻坚战成效充分显现。脱贫攻坚时期，聚焦解决“两不愁三保障”突出问题，坚持把帮扶资金项目沉到贫困县、落到贫困村、绑定贫困户，重点向深度贫困地区和脱贫攻坚一线倾斜。围绕解决基层义务教育、基本医疗、住房安全、饮水安全等方面的突出问题，累计援助对口帮扶地区市县乡村各级医疗机构1400多所（次）、学校1800多所（次），通过大力开展“组团式”人才支援帮助喀什二院、日喀则人民医院建成三甲医院，提升日喀则市上海实验学校高考上线率达到100%，实施65个自然能提水项目解决20多万人生活用水、8万亩农田灌溉用水，推动当地生产生活水平不断提升。2020年底，对口帮扶的7个省区市、20个地州市的98个国家贫困县全部如期摘帽，超过909万建档立卡贫困户脱贫出列，其中200多万贫困人口从我市帮扶项目中直接受益脱贫。2017年以来，上海在历年全国东西部扶贫协作考核中均获得“综合评价好”，在对口支援成效考核中一直名列前茅；上海34家三级医院以“组团＋接力”的方式结对帮扶云南34家县级医院的做法，得到国家点名表扬，上海组团式教育帮扶受到中组部表彰，“上海织密121消费协作地图”被国家发展改革委评为2021年全国消费帮扶助力乡村振兴典型案例，上海闽龙实业有限公司“十年深耕南疆助力消费帮扶”和上海援滇干部“广南高峰牛‘牛’气冲天奔进上海市场”入选2021年全国消费帮扶助力乡村振兴入围典型案例；上海引领社会组织助力对口帮扶的做法在民政部、国家乡村振兴局有关会议上作交流，上海帮扶三峡库区的有关做法得到水利部领导肯定。在2021年2月召开的全国脱贫攻坚表彰大会上，上海33名个人和25个集体受到党中央、国务院表彰，在同年5月20日召开的上海市助力脱贫攻坚总结表彰大会上，70名个人和50个集体受到市委、市政府表彰。
（三）促进对口帮扶地区可持续发展内生动力稳步增强。坚持把培育“造血”功能作为治本之策，实行扶贫同扶智扶志相结合，充分挖掘对口帮扶地区在农业、文化、旅游等方面的潜力，利用我市的科技、资本、信息、市场等优势，大力开展产业、就业、消费、智力等帮扶工作，不断增强对口帮扶地区可持续发展能力，推进乡村振兴开新局。一是做强产业帮扶。市对口支援与合作交流工作领导小组办公室联合市国资、工商联等部门组织开展“双一百”村企结对精准帮扶行动和“万企帮万村”行动，引导我市国资、民企围绕“三带两转”目标，聚焦对口帮扶地区主导产业、传统产业和新兴产业，建基地、建园区，重点扶持了咖啡、民族手工业、果蔬、肉类深加工等一批特色产业，积极推进云南“1+16+N”产业园区合作，引导企业在当地投资600多亿元，在对口帮扶地区建立39个外延生产基地，既促进当地农民持续增收，又丰富了上海市民菜篮子。二是做深就业帮扶。联合市人社部门出台政策，支持对口帮扶地区实施劳动力技能培训、稳岗补贴、中介服务补助、外出务工补助和开发公共服务岗位，帮助对口帮扶地区就地就近就业80多万人次，克服疫情影响，采取积极有效稳岗促进措施。三是做大消费帮扶。与市国资、财政、总工会、商务等部门联合出台深化消费扶贫行动助力决战决胜脱贫攻坚的实施方案，搭建全市统筹的消费帮扶工作平台；联合市商务等部门推动设立全市区级枢纽型消费帮扶点40个、专柜专窗253个、各大卖场商超销售网点2700多个；联合各区和国资国企集团等连续举办对口帮扶地区商品展销会，组织开展“百县百品”“双线九进”等行动，销售各类农产品超300亿元，帮助对口帮扶地区农特产品改造生产链、打通流通链、提升价值链。四是做优智力帮扶。联合市委组织部和市人社、教委、科委等部门充分利用我市人才、科技、资本、信息、管理等优势，加大人才选派力度，优化智力帮扶举措，选派教师、医生等各类专业技术人才、银龄行动等柔性人才志愿服务者近4200人次，帮助对口帮扶地区培训干部、教师、医生、致富带头人等各类人才约40万人次，努力为当地建设一支带不走的人才队伍。五是有效衔接乡村振兴。围绕“产业振兴、人才振兴、文化振兴、生态振兴和组织振兴”，会同对口帮扶地区一方面重点打造了以日喀则亚东县边境小康村、喀什泽普县金湖杨长寿村、普洱市澜沧县班利村、果洛州甘德县恰曲纳村等为代表的一批乡村振兴示范点，接续推动脱贫攻坚成果更加稳固、脱贫地区发展后劲不断增强；另一方面与市农业农村委一道，组织对口帮扶地区基层干部、致富带头人等到上海以及长三角地区乡村振兴示范点参观见学、交流学习，推动上海乡村振兴经验复制推广到对口帮扶地区去。2021年8月，习近平总书记专门给云南沧源县边境村的10位老支书回信，对脱贫攻坚给阿佤山带来的深刻变化感到欣慰，勉励他们“要继续抓好乡村振兴、兴边富民，建设好美丽家园，维护好民族团结，守护好神圣国土”。
（四）推动民族团结进步不断走深走实。坚持以铸牢中华民族共同体意识为主线，不断促进各民族广泛交往、全面交流、深度交融。一是人员交往多层次。采用来沪培训、送教上门、挂职进修、当地办班等形式，建立“团队带团队”“专家带骨干”“师傅带徒弟”等人才培养机制，累计培训对口帮扶地区党员干部、专业技术人才、农村致富带头人等21万余人次。大力推动“引客入喀”“引客进藏”“引客赏果”，开通旅游包机、旅游专列，引导数百万人次上海市民到对口帮扶地区旅游观光、深度体验。二是文化交流多领域。组织《我们在行动》《极限挑战》《潮童天下》《妈妈咪呀》等上海品牌节目赴对口帮扶地区录制，与对口帮扶地区携手创作纪录片《喀什传说》《叶尔羌河》、主题音乐会“从黄河到长江”等文化作品，全面宣传对口帮扶地区优秀文化历史和旅游资源。举办上海和对口帮扶地区文化交流演出200余场次，组织上海音乐学院、杂技团、芭蕾舞团、京剧团、昆曲团等专业演出团队到对口帮扶地区演出，邀请喀什十二木卡姆、日喀则迥巴藏戏、拉孜堆谐、果洛班玛锅庄舞、格萨尔文化等来上海巡回演出，全方位推动中华传统文化和各民族优秀文化交流互鉴。三是结对帮扶全覆盖。与对口帮扶地区加强多层面的交流往来，市区两级广泛开展“村企结对行动”，以“三带两转”（带人、带物、带产业和转观念、转村貌）为内涵，动员全市各类国企、民企、外企广泛参与携手奔小康等活动，组织村村结对、村企结对、学校医院结对超过8000多个，进一步织密了帮扶关系。四是全方位动员社会参与。动员引导上海慈善基金会、中福会以及真爱梦想公益基金等各类社会机构参与对口支援工作，打造“小胡杨”“格桑花之爱”“雪域情·光明行”“圆梦屋脊”“龙湖欣芽计划”等品牌公益项目，为对口帮扶地区捐赠各类物资和募集社会资金超过3亿元，传递了上海温度，营造了民族团结融合的浓厚氛围。同时，积极引导和凝聚社会各方力量参与对口帮扶，撬动社会投入资金超2.8亿元，项目覆盖助医助学、助残扶困、民生保障和安全饮水等众多领域，既让有限的资源发挥最大的效益，又汇聚起守望相助、和衷共济的强大合力。近年来，还通过加大媒体宣传、理论研讨等力度，讲好中国扶贫的“上海篇章”“上海经验”，先后实施“决胜全面小康、决战脱贫攻坚”“全面小康、一起幸福”“新时代、新乡恋、心相连”等一系列主题宣传，营造了全社会齐心协力参与对口帮扶工作的浓厚氛围。
（五）全市统筹协调的领导体制和齐抓共管的推进机制持续巩固。坚持党对对口帮扶工作的领导，不断健全完善市对口支援与合作交流工作领导小组的工作体系。一是构建全市“一盘棋”格局。出台相关政策推动全市聚成合力，16个区和主要职能部门积极出台政策配套细则，主动实地走访调研对接工作，42家市属国企集团参与结对帮扶全覆盖。二是始终坚持规划引领。根据任务转换和实际需要，完成对上海对口支援西藏、新疆、青海、云南等“十三五”规划中期评估和项目调整工作。牵头编制完成上海对口西藏、新疆、青海、云南等“十四五”规划；分地区制订对口帮扶专项三年行动计划，会同受援方和前方工作机构共同编制年度计划方案和专项合作协议，确保对口帮扶工作有规可依、有章可循。三是规范资金项目管理，健全规划引领、资金监管、项目管理、绩效评价、监督审计等工作规范，特别是把资金项目管理作为对口帮扶工作重中之重。结合对口帮扶地区实际，会同对口帮扶地区政府共同制定项目管理办法，明确规划计划编制和项目申报程序；会同当地有关部门制定结余资金、项目储备、资金拨付、第三方管理等措施，推动用制度管事、以制度管人。加强援建资金财务管理，实行资金拨付“双会签”制度，资金管理实行闭环管理，努力做到“交支票不交责任”。建立健全进度月报机制以及前后联动分析研判、跟踪调度机制，确保以周保月、以月保季、以季保年。今年以来，上海以及对口帮扶地区均不同程度遭受疫情影响，全市各方和受援方创新方式手段，强化远程调度，确保抗疫帮扶协调推进。
二、下阶段重点工作考虑
我们将坚决贯彻落实中央决策部署，深入推进东西部协作与对口支援工作，突出帮扶重点，创新帮扶方式，提升帮扶效益，确保不发生规模性返贫，助力对口帮扶地区全面推进乡村振兴。
（一）坚持贯彻“四个不减”，助力对口帮扶地区巩固拓展脱贫攻坚成果。贯彻中央“四个不摘”（摘帽不摘责任、摘帽不摘政策、摘帽不摘帮扶、摘帽不摘监管）要求，推动对口帮扶地区脱贫基础更加稳固、成效更可持续。一是重视程度不减。继续发挥市领导小组的统筹协调功能，坚持以区为工作主体、委办局为重要支撑、前方机构为关键力量、驻外办为桥梁纽带，强化全市“一盘棋”工作机制。二是投入力度不减。按照“两保持”要求，聚焦新结对地区、国家乡村振兴重点帮扶县以及重点工作领域，保质保量完成对口帮扶各项目标任务。三是目标要求不减。根据“三加强”（加强产业协作、加强消费协作、加强劳务协作）工作思路，切实把巩固拓展脱贫攻坚成果摆在优先位置来抓，协助对口帮扶地区加强对易返贫致贫群体的动态管理和即时帮扶，坚决守住不发生规模性返贫底线。四是帮扶成效不减。坚持“交支票不交责任”，积极探索创新帮扶项目监管机制，压实优化考核评价责任体系，持续放大综合效益。
（二）全面贯彻“三个转向”，助力对口帮扶地区全面推进乡村振兴。按照中央三农工作“三个转向”（把工作对象转向所有农民，把工作任务转向推进乡村“五大振兴”，把工作举措转向促进发展）要求，更好支持对口帮扶地区全面推进乡村振兴。一是切实把产业振兴摆在突出位置。以市场为导向完善企业参与对口帮扶工作机制，依托对口帮扶地区发展条件和资源禀赋，支持当地开展规模化经营、标准化生产、品牌化建设，深化产业、劳务、消费等方面的合作，带动当地群众持续增收。二是强化乡村建设重点项目示范。以美丽村庄、精品示范村、边境小康示范村建设等为抓手，因地制宜推动乡村交通出行、供水保障、物流体系、人居环境全面提升，持续打造乡村振兴品牌工程，促进对口帮扶地区乡村治理和乡风文明建设持续进步。三是深化促进民族团结和共同进步。大力推进文化浸润工程，深入开展交流交往交融，做好“携手兴乡村”等工作，鼓励街镇、企业、医院、学校等开展结对，持续增强“五个认同”，不断铸牢中华民族共同体意识。
（三）服务构建新发展格局，协力开创对口帮扶工作新局面。积极顺应新形势新任务，围绕促进区域协调发展、服务新发展格局，不断提升对口帮扶工作水平。一是畅通经济循环。坚持市场配置资源的决定性作用，充分尊重要素流动和产业发展规律，通过探索打造“上海企业+对口帮扶地区资源”“上海研发+对口帮扶地区制造”“上海市场+对口帮扶地区产品”“上海总部+对口帮扶地区基地”合作模式，实现供给创造需求、需求牵引供给的高水平动态平衡。二是实现双向赋能。把对口帮扶地区特色农产品、特色资源等优势，与上海的人才、资金、技术、市场、平台优势紧密结合起来，强化与对口帮扶地区的要素链接、产能链接、市场链接、规则链接，支持市场主体能动作用，推动产业项目有序梯度转移，促进上海与对口帮扶地区互利共赢、共同发展。三是加强开放协作。紧紧抓住共同参与“一带一路”、云南建设面向南亚东南亚辐射中心等机遇，把对口帮扶地区的沿边开放优势、内陆开放优势与上海的全球资源配置功能、开放枢纽门户功能紧密结合起来，面向南亚、东南亚、中亚等新兴市场，共同发挥好枢纽、平台和通道作用，在服务全国大局中实现更大发展。
当前和今后一个时期，对口帮扶工作面临新的形势、任务和要求。我们将继续深入贯彻习近平总书记有关重要指示和党中央决策部署，聚焦不返贫、聚焦可持续、聚焦新起点，多措并举推进对口帮扶工作，为实现更高水平区域协同发展做出新的贡献，在主动服务全国、构建新发展格局中取得新的进展。
以上报告，请予审议。
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