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  • “苍蝇”叮上糊涂账,扶贫“一卡通”成“一卡痛”

    2018年10月28日,四川省凉山州金阳县土沟乡吉尔村村民石一木尔尾(左一)领到清退的彝家新寨建设补助。 受访者供图

    2018年2月1日,夜色下邛海畔,四川省凉山彝族自治州法纪教育中心内,原喜德县民政局救灾救济股股长程鹏菲,面对办案人员,内心翻江倒海。

    因涉嫌严重违纪,程鹏菲被凉山州纪委监委立案调查。他这双伸向扶贫领域的贪腐之手,不仅撂倒了自己,还牵出一场涉及200多万张惠农“一卡通”的乱象。

    惠农扶贫“一卡通”之痛

    时间回溯到2015年12月。

    大凉山腹地的喜德县,按照凉山州民政局的相关政策,向全县农牧民特困群众发放两年的生活救助金,程鹏菲负责汇总发放对象的花名册。

    此前,他因帮初恋女友偿还债务,陷入严重的财务危机。在单位司机郑贵林的怂恿下,通过“借用”他人身份证和银行卡信息,以一户多人的形式,将信息多次复制粘贴到24个乡镇资料中。在没有核实对象的情况下,喜德县农商银行按照这份“水分”极大的花名册发放了救助金。

    2018年1月,凉山在全州范围内开展扶贫资金大检查,程鹏菲东窗事发。督察组发现,喜德县农商银行发放生活救助金的“一卡通”,有些情况很不正常——有的账户一次性进账上万元,有的账户则多次重复进账。还有一户农户有几十人进账,同时存在非本人领取、卡被他人频繁借用等问题。

    随后,督察组将相关问题移送州纪委监委。经彻查发现,短短一年时间,程鹏菲、郑贵林二人共计虚报611户4517人,套取资金208万元。

    200多万元财政资金“跑路”,小小股长有如此巨大“能量”,让纪委办案人员感到震惊。

    2018年2月12日,程鹏菲、郑贵林因涉嫌犯罪被移送司法机关。同年3月,喜德县民政局局长、纪检组长因监督把关不力、工作失职失责被喜德县纪委立案审查。

    “钱来得太容易了,动动手指就可以,我自己也没有想到。”接受调查时,程鹏菲说。

    问题到底出在哪里?

    新华每日电讯记者调查发现,作为全国“三区三州”深度贫困地区,凉山州向群众发放的惠农补贴资金量大类杂:高寒山区农牧民补贴、特殊困境儿童救助金、耕地地力保护补贴、农机补贴……

    对于久居深山中的百姓来说,这些品类繁多的补贴如同“天书”,根本搞不清哪个该享受,能享受多少。

    去年4月,新华每日电讯记者曾在越西县一户贫困户家,看到了11张来自多家银行的“一卡通”,农户却说不清其中的补贴项目。

    群众手里是本“糊涂账”,自然有人打起“小算盘”。

    以农机补贴为例,本来是国家对购置农业机械的普惠性政策,但由于许多群众对政策不了解,便沦为了“苍蝇”眼里的“肥肉”。

    2018年,凉山州纪委对农机补贴进行集中清查,发现全州17个县市,均存在被套取的问题。仅在甘洛县,农机经销商与州农牧局农机管理站工作人员勾结,通过签订虚假合同、制作虚假验收资料、买通验收人员等手段,套取补贴1800余万元。

    在雷波县溪洛米乡,乡长冯莹盈则将手伸向了特殊困难儿童补助,5年共截留82万余元。

    除了“硕鼠”,还有“蛀虫”。

    雷波县烂坝子乡烂坝子村计生专干罗戈立门,两次从群众“一卡通”中“克扣”惠民资金共5890元私用,会东县铁柳镇三村原村党支部书记李加林代群众保管存折,截留低保资金10296元私用……

    当前,国家各项惠民惠农补贴,基本通过“一卡通”发放。以凉山为例,2017年各项惠民惠农补贴资金达96亿元,共61项,分属于十多个部门。

    然而,财政部门依据各职能部门上报情况拨款后,便无法掌握资金最终去向,职能部门各有各的发放渠道,监管的力度不一。

    “乡村组干部在贫困户的审核上,不公开不公示,任性而为;民政局在业务程序、资金监管、人员管理上漏洞百出,失责而为;整个资金拨付程序简单粗暴,随性而为;贫困群众手握‘一卡通’但信息不清,迷惘而为……问题频频、环环失控最终导致巨额扶贫资金流失。”时任凉山州纪委书记张力如此分析。

    张力曾在一次下乡调研时发现,一名村干部裤兜里揣着几十张“一卡通”,称是为群众代管。

    “小卡片承载着扶贫政策的落实,由于缺乏监管,为腐败分子提供了可乘之机。”他说。

    乱象逼出“清卡行动”

    “今天各部门都发言,每个人都谈谈‘一卡通’实施以来出现的问题,还有你们的建议和对策,只谈问题不说成绩!”

    2018年3月27日,张力召集农业、林业、财政、发改、民政、审计、银行等州级相关部门和机构负责人以及部分基层乡镇干部进行座谈,针对“一卡通”上频发的问题,商议对策。

    座谈会上,各部门负责人畅所欲言——

    “‘一卡通’确实方便了群众,但边远地区一些农民不识字更不会使用,把卡交由村组干部保管,这一管就容易出问题。”

    “目前全州涉及18大类、50余小类强农惠农补贴,农户手里的卡少则两三张,多则十多张,来自多家银行,确实不好监管。”

    “有的地方公开公示走形式,群众对自己有哪些补贴、补贴多少,心中揣着本糊涂账;少数基层干部浑水摸鱼,把群众的卡捏在手中违法乱纪;一些部门和银行当甩手掌柜,补贴一拨了之、打卡了事,不监督、不核实……”

    州纪委监委立即汇总意见,提出对全州“一卡通”进行集中摸底清查建议,并第一时间向州委做了汇报。

    当年4月20日,凉山州各级纪检监察机关联合财政、审计等相关职能部门,针对全州17县市的强农惠农财政补贴“一卡通”办理使用情况开展再监督,全面启动了为期5个月的“清卡行动”。

    张力说,集中开展“清卡行动”是问题所迫、形势所逼,是推动全面从严治党向基层延伸的要求,更是打赢精准脱贫攻坚战的现实需要。

    第一步就是“清卡”。围绕全州200多万张“一卡通”在哪里、每户群众有几张卡、如何保管使用、有无交基层干部代管这四个问题进行清查,按照“一户一卡、卡随人走、收支清楚、使用安全”的原则,对扣留“一卡通”、村组干部保管代管、拖延发放、资金滞留等问题进行严肃处理。

    第二步是“清种类”。围绕补贴有哪些、该享受哪些补贴、具体标准是多少、有没有违规享受这四个问题摸底清查,严肃处理分配安排、审核审批中优亲厚友、吃拿卡要、滥用职权、以权谋私等问题。要求扶贫资金分配结果一律公开,乡、村两级扶贫项目安排和资金使用情况一律公告公示。州纪委向全州1118个村发放图文并茂、彝汉双语的《告村民书》海报,公布举报方式,要求张贴在村委会公示栏,鼓励群众监督。

    第三步“清资金”。围绕钱在哪里、补贴资金是否全部发放、未发资金在哪里、是否存在违纪违规这四个问题排查,严肃处理贪污侵占、截留挪用、虚报冒领、私存私分、克扣索要、骗套资金等违纪违法问题。坚决杜绝发放过程中的“跑冒滴漏”,保障资金及时、安全、足额落实到户、发放到人。

    在“清卡行动”中,被查处并开除公职的第一人叫卢国华。

    2018年4月24日,会东县召开扶贫领域腐败和作风问题专项治理会议,专题部署地毯式“清卡行动”相关事宜。铁柳镇财政所副所长卢国华闻讯后慌了。

    就在几天前,“清卡行动”成员单位凉山州审计局到会东进行“一卡通”资金审计时,发现铁柳镇一农户补贴数字极为不合理。

    “这位村民有2012.40亩耕地,2017年补贴金额高达252193元,可能有问题。”审计人员指着材料说。

    接到审计局反馈信息后,会东县农牧局立即要求铁柳镇做出说明,同时向县纪委监委移交了问题线索。县纪委监委立即展开调查核实,于4月28日对卢国华进行立案调查,并采取了留置措施。

    据调查,卢国华利用职务之便,按每户10%的比例,擅自调减全镇农户耕地“地力保护补贴”面积,共2008.25亩,并将调减出来的面积全部划到了自己亲戚、铁柳镇红花村一社农户杨某名下。

    杨某本人实际补贴面积只有4.15亩,经卢国华“调整”后,补贴面积“上浮”为2012.40亩,补贴金额高达25万余元。

    当年5月2日,卢国华受到开除公职处分,违法所得被收缴,并被移送司法机关。5月14日,会东县纪委向群众清退卢国华违法套取资金。

    5个月的“清卡行动”,累计组织4万多人次走村入户、统计分析,核清发放的各类补贴卡738万张,纪委立案585件,党纪政纪处分468人,涉案资金3726万元。

    “通过‘清卡行动’,我们发现村组干部违纪违法现象严重,大部分属于群众身边的‘微腐败’。违规享受补贴、平均分配、挪作他用、代管代持、贪污侵占的现象突出。”张力说。

    “扶贫、惠民政策之所以缩水走样,信息不对称是关键。我们第一步就是要提高知晓度。”会东县纪委书记王建春说。

    2018年5月1日,会东县纪委组织编印下发了8万余册《会东县强农惠农政策补贴告知书》,详细公布了近三年来9个涉农部门牵头实施的35类补助资金的补贴时间、补贴标准和补贴范围。不仅在微信平台同步发布,还将其内容录制成音频,在“村村响”广播广为宣传。

    在冕宁县石龙镇,镇政府与县移动公司协商建立了镇政府短信平台,及时公开惠农政策和补贴金额。

    “过去我们搞政策宣传主要靠挂横幅、贴宣传栏,有了短信平台,镇内3964户农户全覆盖,政策全部精准传达到人。”石龙镇党委书记熊伟一边展示着手机短信一边说。

    “‘清卡行动’就是要让群众清楚,自己能够享受补贴是党和政府的关心,不是基层干部的施舍,通过行动增强群众主人翁意识和维护合法权益意识,发挥好群众监督作用。”喜德县纪委书记李金智说。

    地毯式的清查产生了强大的震慑效果。许多干部告诉新华每日电讯记者,“清卡行动”倒逼了基层管党治党责任落实,切实唤醒了基层党员干部的责任和法纪意识。

    行动开展以来,凉山州1790名人员主动说清问题,退缴资金1903万元。

    “谁敢动扶贫资金,纪委监委就动谁!”在凉山喜德、冕宁、甘洛等县采访途中,随处可见这样的标语。

    打通脱贫攻坚中的“末梢堵塞”

    2018年,在“清卡行动”酝酿之初,张力曾对新华每日电讯记者感叹,这将是一场“捅马蜂窝”的行动。

    截至目前,凉山州“清卡行动”共立案651件,结案496件,党纪政务处分558人,移交司法25人。涉案金额7175万元,清退追缴2314万元,纠错兑付滞留资金1.7亿元。召开清退会27场,现场清退514万元。

    虽然“清卡行动”从凉山发端,但“一卡通”存在的问题并非当地独有。

    2018年6月,四川召开专题视频会动员部署“一卡通”专项治理工作,标志着在凉山成功开展“清卡行动”积累经验的基础上,为期三个月的四川省惠民惠农财政补贴资金“一卡通”管理问题专项治理工作,正式拉开序幕。

    同年8月,四川省纪委监委召开全省惠民惠农财政补贴资金“一卡通”管理问题专项治理工作会,提出要把“一卡通”变成“一卡统”,建立更加清爽的长效管理监督机制。凉山也成了“一卡统”三个试点市(州)之一。

    2019年,凉山州继续深化“一卡通”治理,推进从严治党向基层延伸。目前,凉山已出台了“一卡通”管理办法,补贴资金代理银行由过去的8家减少到2家,补贴资金由财政集中直发。

    凉山州还在县(市)一级设立了惠民惠农财政补贴资金监管中心,依托社保信息系统“金保工程”,开发建设了“惠民惠农财政补贴资金发放及监管平台”。连接贯通乡镇、部门、国库、银行,让补贴申报、审核、公示、发放、监管全过程平台内封闭运行。

    近日,新华每日电讯记者在喜德县拉克乡新村采访时,切实感受到“一卡统”带来的便捷。84岁的的莫呷呷,一手拿着过去的两个存折和一张银行卡,一手拿着将所有补贴归拢到一起的社保卡,不停地感叹“现在方便多了”。她将二代身份证放在“凉山州惠农惠民监管平台”终端机上,资金发放情况立刻出现在屏幕上。

    新村村委会前的告示栏里,张贴着喜德县惠民惠农补贴资金管理办法,农机具购置补贴、草原禁牧补助等共41项惠民惠农补贴资金,一目了然。村里还对享受各项补贴的人员名单进行公示。

    “以前卡太多了,分不清哪张卡啥子钱,都交在村干部手里。今年办了社保卡直接就领到钱了,准备拿去买化肥!”6月24日,昭觉县比尔乡阿硕古普村60岁的吉俄阿都,拿着刚刚取到的157.5元草原补贴满意地说。

    截至目前,凉山17个县市的“惠民惠农财政补贴资金发放及监管平台”已累计发放补贴资金36项、9.7亿余元,惠及农户40余万户。通过“一卡统”,“一卡通”变成了真正的惠民卡、幸福卡。

    从乱到治,“清卡行动”打通了脱贫攻坚中的“末梢堵塞”,对基层腐败问题线索进行“大起底”,在脱贫攻坚中赢得了民心。

    但是,需要“清卡”的,绝不仅是四川。基层虚报冒领、私分截留、代管代取补贴资金等诸多扶贫领域乱象具有全国普遍性,亟须采取有效手段,加强“一卡通”监管,严防扶贫成果在“最后一公里”被啃食。

    采访中,新华每日电讯记者还听到许多来自干部群众的呼声。各方一致认为,减少发放补贴的代理银行、简化兑付环节是切实保障扶贫惠农资金发放到位的关键。但资金发放流程优化、减少发放补贴的银行势必触及一些部门和金融机构的利益,唯有构建党委统一领导、部门各负其责、各方协作配合的工作机制,才能高效推进。

    扶贫惠农补贴涉及项目多、资金多,各级各部门多方监督各自为政,缺乏监管专责机构,难以形成监督合力,整合势在必行。

    基层普遍反映,对此地方层面有心无力,彻底规范尚需加强顶层设计改革,期待中央有关部门在整合补贴种类项目和完善财政体系上下功夫。(记者吴光于)

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