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來(lái)自財(cái)政部網(wǎng)站消息，2020年11月21日至22日，G20將舉行領(lǐng)導(dǎo)人第十五次峰會(huì)。作為今年G20財(cái)金渠道一項(xiàng)重要議程，G20“暫緩最貧困國(guó)家債務(wù)償付倡議”及《緩債倡議后續(xù)債務(wù)處理共同框架》將作為財(cái)金渠道重要成果提交領(lǐng)導(dǎo)人峰會(huì)。這是G20歷史上首次各方共同參與的多邊債務(wù)處理，國(guó)際社會(huì)普遍關(guān)注。近日，財(cái)政部長(zhǎng)劉昆就G20債務(wù)議程接受中外記者采訪。

一、作為最大發(fā)展中國(guó)家和新興債權(quán)人，中國(guó)參與并落實(shí)G20“暫緩最貧困國(guó)家債務(wù)償付倡議”，受到國(guó)際社會(huì)廣泛關(guān)注。請(qǐng)問(wèn)中國(guó)落實(shí)該倡議的具體情況及成效如何？

答：突如其來(lái)的新冠肺炎疫情對(duì)全球經(jīng)濟(jì)造成巨大沖擊，低收入國(guó)家債務(wù)脆弱性和可持續(xù)性問(wèn)題進(jìn)一步凸顯。今年3月26日，G20領(lǐng)導(dǎo)人特別峰會(huì)提出將繼續(xù)應(yīng)對(duì)低收入國(guó)家因疫情導(dǎo)致的債務(wù)脆弱性風(fēng)險(xiǎn)。4月15日，G20財(cái)長(zhǎng)和央行行長(zhǎng)會(huì)議通過(guò)了“暫緩最貧困國(guó)家債務(wù)償付的倡議”（以下簡(jiǎn)稱“G20緩債倡議”），在凈現(xiàn)值中性的基礎(chǔ)上，暫緩最貧困國(guó)家今年5月1日至年底到期的主權(quán)債務(wù)本息償付，以幫助其釋放更多財(cái)政資源，用于應(yīng)對(duì)疫情沖擊和恢復(fù)經(jīng)濟(jì)社會(huì)發(fā)展。

作為G20成員和相關(guān)國(guó)家債權(quán)人，中方高度重視緩債倡議落實(shí)工作。習(xí)近平主席今年5月以來(lái)在多個(gè)國(guó)際場(chǎng)合鄭重承諾，中方將同G20成員一道落實(shí)緩債倡議。中國(guó)財(cái)政部會(huì)同中國(guó)人民銀行等相關(guān)部門，積極協(xié)調(diào)、全面推進(jìn)緩債倡議落實(shí)工作。截至目前，國(guó)家國(guó)際發(fā)展合作署和中國(guó)進(jìn)出口銀行作為雙邊官方債權(quán)人，已經(jīng)全面落實(shí)符合倡議要求的緩債申請(qǐng)，緩債金額達(dá)13.53億美元，23個(gè)國(guó)家從中受益。中國(guó)國(guó)家開發(fā)銀行作為商業(yè)債權(quán)人，按照自主自愿和市場(chǎng)原則，積極響應(yīng)緩債倡議，截至9月末與有關(guān)受惠國(guó)家簽訂協(xié)議的緩債金額達(dá)到7.48億美元。中國(guó)是G20成員中落實(shí)緩債金額最多的國(guó)家，以實(shí)際行動(dòng)為支持最貧困國(guó)家應(yīng)對(duì)疫情挑戰(zhàn)和債務(wù)脆弱性作出了積極貢獻(xiàn)。這也是中方為G20領(lǐng)導(dǎo)人利雅得峰會(huì)提供的重要成果。

倡議落實(shí)過(guò)程中，中國(guó)雙邊官方債權(quán)人和商業(yè)債權(quán)人秉持認(rèn)真負(fù)責(zé)的態(tài)度，有序推進(jìn)緩債行動(dòng)，與申請(qǐng)緩債的國(guó)家進(jìn)行充分磋商，有效確保相關(guān)國(guó)家真正受益。同時(shí)，中方充分尊重申請(qǐng)緩債國(guó)家的自主決定和法律程序，以避免產(chǎn)生申請(qǐng)緩債國(guó)家信用評(píng)級(jí)受損等負(fù)面影響。

二、據(jù)了解，G20目前已經(jīng)同意對(duì)緩債倡議進(jìn)行延期，并將開展后續(xù)債務(wù)處理，可否介紹下這方面的相關(guān)情況？

答：G20緩債倡議主要是解決最貧困國(guó)家面臨的短期流動(dòng)性問(wèn)題。但隨著疫情持續(xù)蔓延，全球經(jīng)濟(jì)陷入衰退，許多最貧困國(guó)家由流動(dòng)性困難演變?yōu)閮敻段�機(jī)的可能性大增。為此，G20在緩債倡議基礎(chǔ)上，提出了延長(zhǎng)緩債期限和后續(xù)債務(wù)處理的建議，推動(dòng)各方采取更大力度的減緩債措施，加大對(duì)最貧困國(guó)家的支持和幫助。

中方對(duì)此予以積極支持。一是率先呼吁并支持延長(zhǎng)緩債期限。習(xí)近平主席在6月17日中非團(tuán)結(jié)抗疫特別峰會(huì)上率先呼吁“G20在落實(shí)當(dāng)前緩債倡議基礎(chǔ)上，進(jìn)一步延長(zhǎng)對(duì)包括非洲國(guó)家在內(nèi)的相關(guān)國(guó)家緩債期限”。這體現(xiàn)了中國(guó)主動(dòng)承擔(dān)國(guó)際責(zé)任、推動(dòng)國(guó)際抗疫合作的大國(guó)擔(dān)當(dāng)，對(duì)于推動(dòng)各方就緩債倡議延期達(dá)成共識(shí)發(fā)揮了重要引領(lǐng)作用。10月14日，G20財(cái)長(zhǎng)和央行行長(zhǎng)一致同意將緩債期限延至2021年6月30日，并將在明年4月確定是否需要再延期6個(gè)月。

二是建設(shè)性參與后續(xù)債務(wù)處理討論，并核準(zhǔn)G20《緩債倡議后續(xù)債務(wù)處理共同框架》（以下簡(jiǎn)稱共同框架）。我們從解決最貧困國(guó)家實(shí)際困難、支持全球抗疫的需要出發(fā)，堅(jiān)持“共同行動(dòng)、公平負(fù)擔(dān)、個(gè)案處理、多邊共識(shí)”的多邊債務(wù)處理原則，推動(dòng)各方最終形成了較為平衡和可操作的后續(xù)債務(wù)處理方案。共同框架強(qiáng)調(diào)加強(qiáng)債權(quán)人協(xié)調(diào)，所有對(duì)某一債務(wù)國(guó)有債權(quán)的雙邊官方債權(quán)人都將參與對(duì)該債務(wù)國(guó)的債務(wù)處理，且原則上不采用債務(wù)免除或核銷的方式；要求商業(yè)債權(quán)人提供與雙邊官方債權(quán)人至少同等條件的債務(wù)處理；多邊開發(fā)銀行要在保護(hù)其現(xiàn)有評(píng)級(jí)和低融資成本并借鑒以往債務(wù)減免等經(jīng)驗(yàn)基礎(chǔ)上，就如何最好地幫助發(fā)展中國(guó)家滿足長(zhǎng)期融資需求制定方案等。11月13日，G20財(cái)長(zhǎng)和央行行長(zhǎng)特別會(huì)議核準(zhǔn)了共同框架。

緩債倡議和共同框架是中方首次參與國(guó)際多邊債務(wù)協(xié)調(diào)進(jìn)程，充分展示了中方致力多邊合作、積極參與國(guó)際債務(wù)行動(dòng)的建設(shè)性態(tài)度。國(guó)際社會(huì)對(duì)此給予高度評(píng)價(jià)，認(rèn)為共同框架是改善國(guó)際債務(wù)協(xié)調(diào)及治理的重要一環(huán)，中方為此作出了積極貢獻(xiàn)。同時(shí)，作為今年G20財(cái)金渠道達(dá)成的具有里程碑意義的歷史性成果，共同框架也體現(xiàn)了G20堅(jiān)持多邊主義、共同應(yīng)對(duì)疫情挑戰(zhàn)的團(tuán)結(jié)協(xié)作精神，以及各方推進(jìn)國(guó)際多邊債務(wù)協(xié)調(diào)、積極解決低收入國(guó)家債務(wù)脆弱性的堅(jiān)定決心。

三、中方對(duì)于下步繼續(xù)參與G20緩債倡議及后續(xù)債務(wù)處理有何考慮？

答：中方將繼續(xù)通過(guò)G20渠道，圍繞解決最貧困國(guó)家債務(wù)脆弱性問(wèn)題，與其他各方加強(qiáng)溝通協(xié)調(diào)，積極參與多邊債務(wù)協(xié)調(diào)進(jìn)程。一是結(jié)合有關(guān)國(guó)家的訴求，切實(shí)落實(shí)好緩債倡議延期工作。二是與其他多雙邊債權(quán)人一道，做好后續(xù)以個(gè)案為基礎(chǔ)的債務(wù)處理工作，加大對(duì)疫情特別重、壓力特別大的發(fā)展中國(guó)家的支持力度。三是繼續(xù)鼓勵(lì)國(guó)家開發(fā)銀行等中國(guó)商業(yè)債權(quán)人以可比方式參與緩債行動(dòng)。四是積極支持最貧困國(guó)家將解決債務(wù)問(wèn)題與經(jīng)濟(jì)社會(huì)恢復(fù)發(fā)展有機(jī)結(jié)合，助其早日擺脫疫情影響，重回發(fā)展軌道。

此外，中國(guó)還將繼續(xù)通過(guò)多雙邊渠道向發(fā)展中國(guó)家抗疫和經(jīng)濟(jì)社會(huì)恢復(fù)發(fā)展提供力所能及的支持，包括落實(shí)好兩年提供20億美元國(guó)際援助的承諾；以多種方式優(yōu)先向發(fā)展中國(guó)家提供疫苗等。我想強(qiáng)調(diào)的是，發(fā)展中國(guó)家債務(wù)問(wèn)題由來(lái)已久，而解決這個(gè)問(wèn)題的關(guān)鍵鑰匙還是發(fā)展。近年來(lái)，廣大發(fā)展中國(guó)家致力于加快推進(jìn)經(jīng)濟(jì)社會(huì)發(fā)展，融資需求很大，但資金不足成為制約其繁榮振興的主要瓶頸。中方作為最大的發(fā)展中國(guó)家，同這些國(guó)家積極開展投融資合作，幫助他們提高自身“造血能力”，助力其經(jīng)濟(jì)社會(huì)發(fā)展和互聯(lián)互通，得到有關(guān)國(guó)家的高度評(píng)價(jià)。我們?cè)竿瑖?guó)際社會(huì)共同努力，為幫助這些國(guó)家實(shí)現(xiàn)自主可持續(xù)發(fā)展、鏟除債務(wù)問(wèn)題產(chǎn)生的根源作出更大貢獻(xiàn)。

四、中方認(rèn)為多邊開發(fā)銀行等多邊債權(quán)人在G20債務(wù)議程中應(yīng)發(fā)揮什么作用？

答：當(dāng)前，最貧困國(guó)家的債務(wù)結(jié)構(gòu)中，世界銀行等多邊債權(quán)人是最主要債權(quán)人。根據(jù)世界銀行2021年《國(guó)際債務(wù)統(tǒng)計(jì)報(bào)告》，在緩債倡議受惠國(guó)公共債務(wù)和公共擔(dān)保債務(wù)總量中，多邊債權(quán)人占比接近一半。鑒此，中方始終呼吁多邊債權(quán)人在向符合緩債資格的國(guó)家提供凈資金流入的同時(shí)，盡快采取合適的減緩債行動(dòng)，幫助最貧困國(guó)家渡過(guò)難關(guān)。特別是世界銀行作為主要多邊債權(quán)方，應(yīng)積極參與減緩債，探索各種可行方式，為減輕最貧困國(guó)家債務(wù)負(fù)擔(dān)提供更多支持。如果世行通過(guò)設(shè)立多邊減緩債基金方式參與減緩債，中方愿積極考慮提供捐款，幫助有關(guān)國(guó)家減輕債務(wù)負(fù)擔(dān)。

Written Interview with Finance Minister Liu Kun on G20 Debt Agenda

The 15th G20 Leaders’ Summit will be held on November 21-22, 2020. As important deliverables of the G20 Finance Track this year, the Debt Service Suspension Initiative for Poorest Countries (DSSI) and the Common Framework for Debt Treatments beyond the DSSI will be submitted to Leaders. This is the first time in G20’s history that countries have jointly participated in multilateral debt treatments. This receives great attention from the international community. Mr. Liu Kun, Minister of Finance, China, had a written interview with the Chinese and foreign press.

Question 1: As the largest developing country and an emerging creditor, China has been participating in and implementing the DSSI, which draws extensive attention across the international community. Could you brief us on how China has been implementing the DSSI and what results have been produced?

Minister Liu Kun: The sudden attack of COVID-19 has dealt a heavy blow to the global economy, and debt vulnerabilities and debt sustainability in low-income countries become even more prominent. At the Extraordinary G20 Leaders’ Summit on March 26, 2020, leaders   stated that they would continue to address risks of debt vulnerability in low-income countries due to the pandemic. On April 15, the G20 Finance Ministers and Central Bank Governors’ Meeting agreed on the DSSI to suspend debt service payments falling due from May 1st, 2020 to the end of the year owed by the poorest countries. The suspension of payments will be NPV-neutral. The initiative is intended to help these countries free up more fiscal space for increasing social, health or economic spending in response to the crisis.

As a G20 member and a creditor, China gives priority to the DSSI’s implementation. Since May this year, President Xi Jinping has made solemn commitments on several international occasions that China would work with other G20 members to implement the DSSI. The Ministry of Finance of China, along with the People’s Bank of China and other agencies concerned, has been coordinating and acting on the DSSI in a proactive and comprehensive manner. Up till now, the China International Development Cooperation Agency and the Export-Import Bank of China, as official bilateral creditors, have implemented all debt suspension requests that are DSSI-eligible. The total debt service payments suspended amount to USD1.353 billion, with 23 countries benefiting from the initiative. The China Development Bank (CDB), as a commercial creditor, has, on a voluntary basis and according to market principles, actively responded to the DSSI. By the end of September, the CDB has signed agreements with DSSI beneficiaries involving USD 748 million. Ranking the first among G20 members in terms of deferral amount, China helps, in real action, the poorest countries respond to the pandemic and address debt vulnerability. This is also an important deliverable that China contributes for the upcoming G20 Leaders’ Summit.

Being professional and responsible, the Chinese official bilateral creditors and commercial creditors have been pressing ahead with the DSSI implementation in an orderly manner by having adequate and thorough consultations with requesting countries to make sure that the countries can truly benefit from the initiative. Meanwhile, China fully respects the independent decisions and legal procedures of requesting countries with a view to preventing adverse impact on requesting countries such as  credit rating downgrade.

Question 2: The G20 has agreed to extend the DSSI and endorsed the ‘Common Framework for Debt Treatments beyond the DSSI’ which is intended to facilitate debt treatment for DSSI-eligible countries. Could you give us a brief introduction thereon?

Minister Liu Kun: The DSSI is mainly intended to meet the short-term liquidity needs of the poorest countries. However, with the global economy sliding into recession against the backdrop of continued spread of COVID-19, the liquidity difficulties of many poorest countries may  evolve into a solvency crisis. The G20 hence proposed the extension and debt treatments beyond the DSSI with a view to providing greater support to the poorest countries by pushing all parties to take stronger actions for debt treatment.

China has been in favor of the proposals:

First, China took the lead in calling for and supporting the extension of the DSSI. At the Extraordinary China-Africa Summit on Solidarity against the COVID-19 held on June 17th, President Xi Jinping stated that, ‘China will work with other members of the G20 to implement the DSSI, and, on that basis, urge the G20 to extend debt service suspension still further for countries concerned, including those in Africa’. This demonstrates China’s sense of responsibility as a major country and its commitment to the international fight against the pandemic. The statement by President Xi plays an important role in leading all parties towards a consensus on the DSSI extension. On October 14th, G20 Finance Ministers and Central Bank Governors unanimously agreed to extend the DSSI to June 30th, 2021, and said that they would examine by the time of the 2021 IMF/WBG Spring Meetings whether the economic and financial situation requires to extend further the DSSI by another 6 months.

Second, China participated in the discussions on debt treatments beyond the DSSI in a constructive way, and endorsed the Common Framework. To help address the real difficulties of poorest countries and support the global fight against the pandemic, and in line with the principles of ‘joint actions, fair burden sharing, a case-by-case approach and multilateral consensus’ for multilateral debt treatment, China worked with other parties to finalize a relatively balanced and operable solution to debt treatments beyond the DSSI. The Common Framework highlights the need for strong creditors' coordination and requires that all official bilateral creditors with claims on a debtor country will participate in the debt treatment of that country. According to the Common Framework, in principle, debt treatments will not be conducted in the form of debt write-off or cancellation; debt treatments by private creditors should be at least as favorable as that provided by official bilateral creditors; and multilateral development banks will develop options for how best to help meet longer term financing needs of developing countries, including by drawing on past experiences to deal with debt vulnerabilities such as domestic adjustment, net positive financial flows and debt relief, while protecting their ratings and low cost of funding. On November 13th, the Extraordinary Meeting of G20 Finance Ministers and Central Bank Governors endorsed the Common Framework.

As a party to the DSSI and the Common Framework, China participates in a multilateral debt coordination process for the first time. China’s participation points to the country’s commitment to multilateral cooperation. The international community commends China’s  constructive attitude toward international debt actions while recognizing the Common Framework as an important part in international debt coordination and governance. As a milestone achievement on the G20 finance track this year, the Common Framework also showcases G20’s commitment to multilateralism and its spirit of solidarity and cooperation in jointly responding to the challenges of the pandemic. The Common Framework also demonstrates countries’ firm resolve to advance multilateral debt coordination and help low-income countries address risks of debt vulnerability.

Question 3: What will China do as the next steps to implement the DSSI and participate in debt treatments beyond the DSSI?

Minister Liu Kun: China will stay in close communication and coordination with other parties within G20 over the issue of debt vulnerabilities in the poorest countries, and we will continue to participate, in an active manner, in the multilateral debt coordination process .

First, we will act on the DSSI extension in real earnest by taking into account the requests of relevant countries. Second, we will work together with other multilateral and bilateral creditors for debt treatment on a case-by-case basis. Greater support will be given to countries that are hardest hit by the pandemic and are under heavy stress. Third, we will continue to encourage the CDB and other Chinese commercial creditors to participate in the DSSI on comparable terms. Fourth, we will assist poorest countries in combining their efforts to address debt challenges with their efforts to restore economic and social development with the aim of helping them get out of the woods at an early date and go back onto the path of growth.

Furthermore, China will provide assistance to developing countries for their efforts in fighting against the pandemic and achieve economic and social recovery and development to the best of our ability through bilateral and multilateral channels, including providing USD 2 billion of international assistance over two years. We will prioritize providing in various ways developing countries with vaccine against COVID-19 when it becomes available. I would like to emphasize that the debt issue of developing countries has been long-standing. The key to solving this issue is development. In recent years, the vast majority of developing countries have been committed to accelerating economic and social development, and there is a great demand for financing. However, financing shortage remains a major constraint on development and prosperity in these countries. As the largest developing country, China has actively engaged in investment and financing cooperation with these countries to help them improve their ‘self-development capacity’ and facilitate their economic and social development as well as connectivity. China’s efforts have been well received. We are ready to work with other parties and make greater contributions in helping these countries realize independent and sustainable development, and eradicate the root causes of the debt issue.

Question 4: What role should multilateral creditors, including MDBs, play for the G20 debt agenda?

Minister Liu Kun: Multilateral creditors like the World Bank have the lion’s share of debt service payments owed by the poorest countries. According to World Bank’s International Debt Statistics 2021, multilateral creditors account for almost half of DSSI-eligible countries’ total public and publicly guaranteed debt. In view of this, China calls on multilateral creditors to, while providing positive net inflows to DSSI- eligible countries, take part in the debt treatment process in order to help the poorest countries through this challenging time. In particular, the World Bank, as a major multilateral creditor, should take part in debt treatments and explore various options to provide more support to the poorest countries in alleviating their debt burden. If the World Bank takes part in debt treatment through setting up a multilateral debt relief facility, China will positively consider contributing to the facility as such to help ease the debt burden on the poorest countries.