PAN Haoyu, TIAN Zongbo, HUANG Yingfei
2025, 0(9): 44-57.
The Third Plenary Session of the 20th CPC Central Committee made further deployment on deepening the reform of the fiscal and taxation system, with the establishment of a sound budget system as an important link in the macroeconomic governance system.The baseline budgeting proposed in this paper is expected to be a powerful method and procedure for improving China's budget system.Compared with the base approach, the baseline budget distinguishes current policy and policy change in a medium-term perspective.By measuring and determining the policy costs in the early stages of the budget process and constraining various macroeconomic variables to equilibrium levels, it enhances the consistency of macroeconomic policy orientation and fiscal discipline.By treating current policy as a feasible reference point, it guides people to pay more attention to policy change, improving the efficiency and performance of budget allocation.By separating the net effects of policy change, it enhances budget transparency.In addition, the baseline clarifies the expectations of future available resources, which is conducive to reducing interest conflicts and thus improving the reform of zero-based budgeting.After analyzing the conditions required for the baseline budget, it is found that the feasibility of implementing the baseline budgeting in China is relatively high.In terms of practical conversion, it should follow the order of macro budget, allocation budget, and operational budget, starting from the top down to initiate the budget process, and combine the budget application process from the bottom up and repeated refinement, while clarifying the responsibilities of relevant departments.