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lar view. The ambiguous orientation of function is the main reason why finan cial reform is not very The ambiguity of the function is discussed further below. First, there is an ambiguous orientation of functions regarding rural coop erative finance. How China should develop cooperative finance is still sub ject to debate. Tang Renjian, a researcher in the Office of Finance andEconomy Leading Group of the ChineseCommunist Party (CCP), pointed out: “ It is really a headache and hard to explain in a few words. Most schol ars think this is a problem that cannot be simplyavoided.” 3Thisrecognition shows China’ s dilemma in developing rural cooperatives. Many scholars in theoretical circles insist that rural cooperative finance should be fully devel oped andstandardized because it is an important kind of organization and form of operation for rural finance. Second, there is an ambiguous business scope between the finance of agricultural policy and mercial finance. In 1994, the Agricultural Development Bank of China was set up to stress the separation of mercial finance from policy finance. The problem cannot be solved quickly because first mercial financial institutions still undertake some of the policy loans. For example, the Agricultural Bank of China still undertakes policy loans to help the impoverished and capital con struction loans to help urbanization in the rural areas. By the end of 2020, the loan surplus relating to “ agriculture, rural areas, and farmers” reached billion, accounting for 42 percent of all loan sur Second, there are still some policy restrictions in rural credit co operatives. The state does not treat rural credit cooperatives as policy finance but limits their service target within “ agriculture, rural areas, and farmers.” Rural credit cooperatives are still regarded as an important channel for providing agricultural policy support loans. Third, in recent years, the existence of the Agricultural Development Bank of China was seriously questioned. There are many heated arguments about its future existence. It seems that if the development of the system of food circulation turns to the market, the business of the Agricultural Development Bank would bee narrower and narrower. The overall rural financial sys tem cannot be depended upon only by rural credit cooperatives. The policy function of the Agricultural Developme