Notice of the Shanghai Municipal Finance Bureau, the Shanghai Branch of the People's Bank of China and the Shanghai Municipal Supervisory Bureau on Further Promoting the Reform of the System of Public Service Cards in Shanghai Municipality

上海市财政局、中国人民银行上海分行、上海市监察局关于本市进一步推进公务卡制度改革的通知

Promulgating Institution: Shanghai Municipal Finance Bureau; Shanghai Branch of the People’s Bank of China; Shanghai Municipal Supervisory Bureau

Document Number: Hu CaI Ku [2012] No.57

Promulgating Date: 11/07/2012

Effective Date: 11/07/2012

颁布机关: 上海市财政局; 中国人民银行上海分行; 上海市监察局

文      号: 沪财库[2012]57号

颁布时间: 11/07/2012

实施时间: 11/07/2012

To all municipal-level competent budgeting departments, finance bureaus and supervisory bureaus of all counties and districts, and the agency banks for public service cards of all budget entities in Shanghai Municipality,

The reform of the system of public service cards, since its launch in 2007, has made remarkable achievements in many fronts, including reducing the amount of cash used by budget entities and standardizing the expenditure for performance of official duties. Nevertheless, certain municipal-level budget entities and budget entities at the level of districts, counties, towns and villages have not yet implemented the reform of the system of public service cards, negatively affecting the reform process. Pursuant to the Notice of the Ministry of Finance and the People’s Bank of China on Accelerating the Reform of the System of Public Service Cards, this Notice is hereby given as follows on further promoting the reform of the system of public service cards in Shanghai Municipality:

    各市级预算主管部门,各区县财政局,各区县监察局,本市各预算单位公务卡代理银行:

    公务卡制度改革自2007年推行以来,在减少预算单位现金使用、规范公务支出等方面取得明显成效。但目前仍有一些市级和区县、乡镇预算单位尚未实施公务卡制度改革,影响了改革进程。根据《财政部中国人民银行关于加快推进公务卡制度改革的通知》的规定,现就进一步推进本市公务卡制度改革有关事宜通知如下:

1. Comprehensively reform the system of public service cards.

(1) Municipal-Level budget entities shall achieve the full coverage of the system of public service cards. Relevant competent budgeting departments at the municipal level shall expand the coverage of the system of public service cards to all grass-roots budget entities (excluding secret-related entities) as soon as possible. Budget entities that have not yet implemented the reform of the system of public service cards shall immediately commence the reform process, and uniformly apply for public service cards for their staff members no later than the end of November 2012. Budget entities that have applied for public service cards but have not yet activated them for use shall formulate the standards for use of public service cards in a quicker pace, and urge their staff members to use public service cards for all expenditure incurred for performance of official duties.

(2) More budget entities at the level of districts, counties, towns and villages shall be covered by the system of public service cards. In districts and counties where the treasury single account system applies, efforts shall be made to more quickly expand the reform of the system of public service cards to all budget entities at the level of districts, counties, towns and villages, and to include payment by public service cards in the treasury single account system for management. Districts and counties that have not yet adopted the treasury single account system shall also comply with the foregoing provisions, carry out the reform of the system of public service cards, and include payment by public service cards in the treasury single account system for management once they adopt the treasury single account system, so as to ensure that the reform covers all budget entities by the end of 2012 as required.

       一、全面实施公务卡制度改革

    (一)市级预算单位要实现公务卡使用的全覆盖。市级相关预算主管部门要加快将公务卡制度覆盖到所有基层预算单位(涉密单位除外)。尚未实施公务卡制度改革的预算单位,要抓紧启动改革,不迟于2012年11月底为本单位工作人员统一办理公务卡;已办理公务卡尚未激活、使用的预算单位,要加快建立公务卡使用制度规范,督促工作人员在公务消费时全面使用公务卡。

    (二)提高区县、乡镇预算单位公务卡使用的覆盖面。凡实施国库单一账户体系的区县,要加快将公务卡制度改革覆盖到区县、乡镇所有预算单位,并将公务卡支付纳入国库单一账户体系管理;尚未实行国库单一账户体系的区县也要按照上述规定,先行进行公务卡制度改革,待实行国库单一账户体系后,将公务卡支付纳入国库单一账户体系管理,确保2012年年底前将上述改革按规定覆盖到所有预算单位。

2. Strengthen the development of systems related to public service cards.

(3) The administrative measures for public service cards shall be fine-tuned. The finance bureaus of all districts and counties shall improve the public service card management systems applicable in their respective areas by referring to the Interim Administrative Measures for Public Service Cards of Municipal-Level Budget Entities of Shanghai Municipality (Hu Cai Ku [2008] No. 45), rigorously standardize the card issuance and fee reimbursement processes, specify management responsibilities and strengthen day-to-day supervision.

(4) Catalogues of items subject to mandatory settlement by public service cards shall be fully adopted. Municipal-Level budget entities shall strictly comply with the Catalogue of Items subject to Mandatory Settlement by Public Service Cards of Municipal-Level Budget Entities of Shanghai Municipality, and shall in principle refrain from using cash for items that are required to be settled with public service cards. Finance bureaus of all districts and counties shall, in light of local realities, establish a public service card mandatory settlement catalogue system by the end of 2012, and include the business travel expenses, reception expenses, conference fees and other expenditure for performance of official duties of budget entities into the scope of the mandatory settlement catalogues.

(5) An appraisal mechanism shall be established for the reform of the system of public service cards. To raise the efficiency for use of public service cards, the Municipal Finance Bureau shall use indicators such as the card issuance rate, card activation rate, card use rate and cash use rate to conduct appraisal of the progress of the reform of the system of public service cards of municipal-level budget entities and all districts and counties on a regular basis. Finance bureaus of all districts and counties shall, in light of their respective local realities, establish and improve their respective appraisal mechanism for the reform of the system of public service cards.

       二、完善公务卡相关制度建设

    (三)完善公务卡管理办法。各区县财政局要参照《上海市市级预算单位公务卡管理暂行办法》(沪财库〔2008〕45号),健全完善本地区公务卡管理制度,严格规范办卡程序和报销业务流程,明确管理职责,加强日常监督。

    (四)全面推行公务卡强制结算目录制度。市级预算单位要严格执行《上海市市级预算单位公务卡强制结算目录》(沪财库〔2012〕39号),按规定使用公务卡结算的,原则上不再使用现金。各区县财政局要结合本地实际,于2012年年底前建立公务卡强制结算目录制度,将预算单位差旅费、招待费和会议费等公务支出纳入强制结算目录范围。

    (五)建立公务卡制度改革考核机制。为提高公务卡使用率,市财政局将围绕“办卡率、激活率、刷卡率、现金率”等指标对市级预算单位和各区县公务卡制度改革落实情况定期进行考核。各区县财政局要结合本地实际,建立健全本地区公务卡制度改革考核机制。

3. Standardize the use and management of public service cards.

(6) The standards for use of public service cards shall be unified. Public service cards shall all be standard China UnionPay cards whose dedicated bank identification number (“BIN”) begins with “628”. Agency banks for public service cards shall clean up and register previously-issued public service cards without a dedicated BIN, and replace them with standard China Unionpay cards in a timely manner.

(7) The procedures for issuance of public service cards shall be standardized. A budget entity shall sign an entrustment agreement with an agency bank for public service cards to specify the rights and obligations of both parties, and shall report the said agreement to the relevant finance department for record-filing. In principle, only one public service card shall be issued to the same person. A budget entity shall uniformly organize its staff members to apply for public service cards to the relevant agency bank, and shall not apply for public service cards for any person other than its staff members. An agency bank for public service cards shall process applications for, and issue, public service cards in strict accordance with the card issuance procedures and requirements, and shall issue public service cards only after it finds no error after checking the card application information submitted by a budget entity via the municipal public service card management system. Where the procedures related to public service cards need to be gone through again due to loss or damage of the cards or otherwise, the budget entities and agency banks for public service cards concerned shall promptly make information maintenance in the public service card management system so as to ensure that information on public service cards is true and accurate.

(8) Management over the daily use of public service cards shall be strengthened. Municipal-level budget entities shall, pursuant to the Interim Administrative Measures for Public Service Cards of Municipal-Level Budget Entities of Shanghai Municipality, formulate their respective procedures for reimbursement of fees settled by public service cards, regulate the spending by public service cards and strengthen the examination and management of proofs submitted for fee reimbursement. The finance bureaus of all districts and counties shall, pursuant to their respective administrative measures for public service cards, supervise and guide the budget entities in their respective districts and counties to improve internal control systems to strengthen the management over their daily use of public service cards.

(9) The construction of public service cards management systems and information security management shall be strengthened. Finance departments at all levels, agency banks for public service cards and China UnionPay shall optimize and fine-tune the management systems for public service cards to improve their operating speed and stability, and ensure the accurate and timely transmission of the information on consumption by public service cards. They shall take necessary institutional and technological measures to protect the information security of public service cards, and shall never provide external parties with, or divulge to external parties, various data and materials concerning the holders of public service cards and the expenditure for performance of official duties.

       三、规范公务卡使用管理

    (六)统一公务卡用卡标准。公务卡一律采用专用发卡行标识代码(BankIdentificationNumber,BIN)为“628”开头的银联标准卡。对于之前已经核发、未采用专用BIN的公务卡,公务卡代理银行应当进行清理和登记,并及时做好银联标准公务卡的换卡工作。

    (七)规范公务卡发卡程序。预算单位要与公务卡代理银行签订委托代理协议,明确双方的权利和义务,并报财政部门备案。公务卡原则上一人一卡,由预算单位统一组织本单位工作人员向代理银行申办,严禁为非预算单位人员办理公务卡。公务卡代理银行要严格按照公务卡发卡程序和要求办理发卡,在本市公务卡管理系统中对预算单位申请的办卡信息核对一致无误后,方可发卡。对于因遗失、损毁等原因补办公务卡业务的,预算单位和公务卡代理银行必须及时在公务卡管理系统中进行信息维护,确保公务卡信息真实、准确。

    (八)加强公务卡日常使用管理。市级预算单位应根据《上海市市级预算单位公务卡管理暂行办法》的有关规定,制定本单位公务卡使用报销工作规程,规范公务卡支出行为和加强报销凭证审核管理。各区县财政局应根据本地区公务卡管理办法,督促和指导区县预算单位通过完善内控制度,以加强本单位公务卡日常使用管理。

    (九)加强公务卡管理系统建设和信息安全管理。各级财政部门、公务卡代理银行和中国银联要优化和完善公务卡管理系统,提高公务卡管理系统运行速度和稳定性,确保公务卡消费信息传递准确、及时;要在制度和技术上采取必要措施保障公务卡信息安全,严禁对外提供或泄露与公务卡持卡人和公务支出有关的各种数据资料。

4. The environment for promoting the use of public service cards shall be improved.

(10) Publicity and training efforts shall be stepped up. All municipal-level competent budgeting departments and finance bureaus of all districts and counties shall properly conduct publicity and training so that public office holders fully understand the specific ways to use public service cards and the knowledge on safe card use, and that the persons in charge of financial matters of budget entities master the provisions on management of public service cards and the detailed fee reimbursement and repayment procedures, thus mobilizing the enthusiasm of budget entities and public office holders for applying for and using public service cards, and creating an environment of favorable public opinions for promoting the use of public service cards.

(11) The service quality of agency banks for public service cards shall be improved. Agency banks for public service cards shall provide quality and convenient services for budget entities and cardholders, simplify card application procedures, streamline the card application process, and provide prompt and automatic service reminders on account reconciliation, consumption, fund repayment and other information. They shall make more efforts to compile statistics concerning public service cards, pay close attention to the use of such cards, and provide regular feedback to finance departments and budget entities.

(12) More efforts shall be exerted to nurture markets that accept settlement by public service cards. Finance departments at all levels shall take the lead in coordinating the entities and enterprises closely related to the expenditure for performance of official duties to actively accept settlement by public service cards. When determining the designated hotels for business travel and meetings of Party and government organs and the designated gas stations and maintenance service providers for vehicles for duty performance, finance departments and budget entities shall in principle take the acceptance of settlement by public service cards as a prerequisite. Agency banks for public service cards and China UnionPay shall expand the network of point-of-sale terminals, increase their density and number, and improve their operational quality. Inconsistency between the names of the persons who sign off purchase orders and the billing names indicated on invoices is strictly prohibited.

       四、改进公务卡制度使用推广环境

    (十)加强宣传培训。各市级预算主管部门和区县财政局要做好宣传培训工作,使公务人员充分了解公务卡的具体使用方法和安全用卡知识,单位财务人员熟练掌握公务卡管理规定和报销还款具体操作,提高办卡、用卡积极性,为推广使用公务卡营造良好的舆论环境。

    (十一)提高公务卡代理银行服务质量。公务卡代理银行要为预算单位和持卡人提供优质、便捷服务,简化办卡手续,缩短办卡流程,及时传递对账、消费、还款等自动提醒服务信息;加强公务卡数据统计,密切关注公务卡使用情况,定期向财政部门和预算单位反馈。

    (十二)进一步改善公务卡受理市场建设。各级财政部门要牵头协调与公务支出密切相关的单位和企业积极受理公务卡。财政部门、预算单位在确定党政机关出差会议定点饭店及公务车辆定点加油、维修供应商时,原则上要将受理公务卡作为前提条件。公务卡代理银行、中国银联要扩大销售点终端(PointofSale,POS)机具布设范围,加大布设密度,增加机具数量,提高运行质量,严禁签购单与发票户名不一致情况出现。

5. Supervisory organs shall assist in promoting the system of public service cards.

(13) Supervisory organs at all levels shall strengthen supervision and inspection, and coordinate and cooperate with relevant departments to conduct performance evaluation of the compliance with the system of public service cards, and establish an administrative accountability system to investigate for the liabilities for illegalities and irregularities in a stern manner.

       五、监察机关协助推进公务卡制度

    (十三)各级监察机关要加强监督检查,协调配合有关部门对执行公务卡制度情况进行绩效评估,建立行政问责制度,对违法违规行为严肃查处。

6. Report the progress of the reform of the system of public service cards in an accurate and timely manner.

(14) Finance bureaus of all districts and counties shall submit information on the reform of the system of public service cards as scheduled in accordance with the Notice on Establishing the System for Submission and Notification of the Information on the Reform of the Centralized Receipt and Payment System of the State Treasury (Hu Cai Ku [2012] No. 35).

(15) Finance bureaus of all districts and counties shall standardize the statistical compilation of public service cards, cross-check the data submitted by budget entities at the same level with the data of agency banks for consistency, and then submit the same to the Municipal Finance bureau, so as to ensure the truthfulness and accuracy of the data.

(16) An agency bank for public service cards shall, on a regular basis, compile statistics on the number of public service cards issued thereby and the use of such cards, and submit the same to the Shanghai Branch of the People's Bank of China.

Shanghai Municipal Finance Bureau

Shanghai Branch of the People's Bank of China

Shanghai Municipal Supervisory Bureau

November 7, 2012

       六、及时准确报送公务卡制度改革进展情况

    （十四）各区县财政局要按照《关于建立国库集中收付制度改革信息上报和通报制度的通知》（沪财库〔2012〕35号）规定，按时报送公务卡制度改革情况。

    （十五）各区县财政局要规范公务卡数据统计，对本级预算单位报送的数据，应当与代理银行数据核对一致，并向市财政局报送，确保数据真实准确。

    （十六）各公务卡代理银行应定期对本银行发放的公务卡数量以及使用情况进行统计，报送人民银行上海分行。

    上海市财政局

    中国人民银行上海分行

    上海市监察局

    二O一二年十一月七日