李克强副总理:在改革开放进程中深入实施扩大内需战略

作者: 2014-01-13 16:35

在改革开放进程中深入实施扩大内需战略Thoroughly Applying the Strategy of Boosting Domestic Demand在不久前召开的中央经济工作会......

在改革开放进程中深入实施扩大内需战略
Thoroughly Applying the Strategy of Boosting Domestic Demand

 
在不久前召开的中央经济工作会议上,胡锦涛同志、温家宝同志作了重要讲话,科学分析了当前国际国内经济形势,系统总结了2011年经济工作,全面部署了2012年经济工作,提出了总体要求、大政方针和主要任务。在此,我就贯彻落实中央经济工作会议精神、在改革开放进程中深入实施扩大内需战略这一问题,谈些认识。
 
At the Central Economic Work Conference that was held recently, General Secretary Hu Jintao and Premier Wen Jiabao both delivered important speeches. In addition to analyzing the current international and domestic economic situations and giving a summary of our economic work in 2011, their speeches also outlined the overall arrangements for our economic work in 2012, setting forth general requirements, guiding policies, and major tasks. Here, I would like to talk about some views in regard to implementing the guiding principle of the Central Economic Work Conference and thoroughly applying the strategy of boosting domestic demand during the process of reform and opening up.
 
一、在新的形势下继续处理好速度、结构、物价三者关系,为在改革开放进程中深入实施扩大内需战略创造良好环境
I. Continuing to balance the relationship between speed, structure and prices under new circumstances to create favorable conditions for the thorough application of the strategy of boosting domestic demand during the process of reform and opening up
 
中央经济工作会议指出,推动2012年经济社会发展,必须突出把握好稳中求进的工作总基调。要全面贯彻党的十七大和十七届三中、四中、五中、六中全会精神,以邓小平理论和“三个代表”重要思想为指导,深入贯彻落实科学发展观,继续实施积极的财政政策和稳健的货币政策,保持宏观经济政策的连续性和稳定性,增强调控的针对性、灵活性、前瞻性,继续处理好保持经济平稳较快发展、调整经济结构、管理通胀预期的关系,加快推进经济发展方式转变和经济结构调整,着力扩大国内需求,着力加强自主创新和节能减排,着力深化改革开放,着力保障和改善民生,保持经济平稳较快发展和物价总水平基本稳定,保持社会和谐稳定。在新形势下,统筹处理好速度、结构、物价三者关系,事关经济社会发展全局,事关当前和长远发展,对于做好2012年经济工作具有重大意义。
 
The Central Economic Work Conference emphasized that the key theme of economic and social development in 2012 must be to make progress while maintaining stability. We need to comprehensively apply the guidelines set forth at the Seventeenth National Party Congress and the Third, Fourth, Fifth, and Sixth Plenary Sessions of the Seventeenth CPC Central Committee, take Deng Xiaoping Theory and the important thought of Three Represents as our guide, and thoroughly implement the Scientific Outlook on Development. We need to continue to implement a proactive fiscal policy and a prudent monetary policy, maintain the continuity and stability of macroeconomic policies, and make our macro-control more targeted, flexible and forward-looking. We need to keep a sound balance between maintaining steady and rapid economic growth, adjusting the economic structure, and regulating inflation expectations, so as to accelerate the transformation of the pattern of economic development and the adjustment of the economic structure. We need to focus our efforts on boosting domestic demand, strengthening our capacity for independent innovation, enhancing energy conservation and emissions reduction, deepening reform and opening up, and ensuring and improving the public well-being. By doing so, we will be able to sustain steady and rapid economic growth, keep the overall level of prices steady, and maintain social harmony and stability. Under new circumstances, our efforts to balance the relationship between speed, structure and prices will have a major bearing on the overall situation of economic and social development. They will also have a bearing on China’s development both now and in the future, and are essential to the success of our economic initiatives in 2012.
 
过去一年,面对复杂严峻的国内外经济形势,党中央、国务院审时度势、科学决策,把控制物价总水平过快上涨作为宏观调控的首要任务,正确处理保持经济平稳较快发展、调整经济结构、管理通胀预期的关系,采取一系列有效措施,使国民经济继续朝着宏观调控的预期方向发展,呈现增长较快、价格趋稳、效益较好、民生改善的良好势头。全年经济增长率9.2%,居民消费价格涨幅5.4%。同时,经济结构调整取得积极进展。实现了“十二五”时期的良好开局。
 
During the year 2011, the CPC Central Committee and the State Council formulated rational policy decisions by taking stock of the complex and serious economic situations faced both domestically and internationally. Having identified efforts to curb the excessively rapid increase of prices as the primary task of our macro-control policies, we strived to ensure a balance between maintaining steady and rapid economic growth, adjusting the economic structure, and regulating inflation expectations. We adopted a series of effective measures to guide the national economy towards the expectations of our macro-control policies, thereby creating a favorable situation in which the economy grew at a relatively rapid speed, prices became stable, economic efficiency was increased, and public well-being was improved. Our economy grew by 9.2% in the year 2011, while consumer prices grew by 5.4%. At the same time, positive progress was also made in the restructuring of the economy, marking a favorable start to the Twelfth Five-Year Plan period.
 
新的一年,国内外经济形势更为复杂严峻,处理好速度、结构、物价的关系,面临不少困难和挑战。从国际看,国际金融危机远未结束,一方面,欧洲主权债务危机持续发酵,西方主要经济体失业率居高不下,世界经济增长动力明显减弱,风险因素增多,经济低迷可能是一个长期趋势。在这样的背景下,主要国际组织都调低了对2012年世界经济增长率的预测。当然,美国等国也出现了一些复苏回暖的迹象,对此我们也要高度关注。另一方面,一些发展中国家和新兴经济体物价上涨较快,一些发达国家通胀率也处于较高水平,宏观决策面临两难选择。目前,国内市场与国际市场已互联互接,世界经济增长下滑、通胀水平抬升和发达国家复杂多变的经济形势,会通过多种渠道对我国发展产生影响。
 
In the year 2012, domestic and international economic situations will be even more complex and severe. We will be confronted with numerous difficulties and challenges as we strive to balance the relationship between speed, structure and prices. From an international perspective, the international financial crisis is far from over. On the one hand, the likelihood is that the economic slump will continue for a long period of time, considering that the European sovereign debt crisis is continuing to simmer, rates of unemployment remain high in major Western economies, the momentum of world economic growth is obviously diminishing, and risk factors are increasing in number. Against this backdrop, major international organizations have lowered their forecasts for global economic growth in 2012. Of course, there have been signs of economic recovery in some countries, such as the US, which require our close attention. On the other hand, the soaring prices in some developing countries and emerging economies, coupled with relatively high rates of inflation in some developed countries have presented them with a dilemma in macroeconomic policy-making. Since our domestic market is now closely linked to the international market, China’s development will be affected by the global economic slump, high inflation rates, and the complex and volatile economic situations in developed countries through different channels.
 
从国内看,经济增速缓慢回落与物价涨幅仍处高位的问题相互交织,经济结构性矛盾突出。一是经济增长存在放缓压力。在外需下降的同时,制约内需增长的因素也在增加,居民收入保持较快增长的难度加大,企业投资能力和意愿下降,扩大民间投资还存在不少障碍。二是推动物价上涨的影响因素仍然较多。既有劳动力、土地、能源资源等要素价格上涨造成的生产成本上升的压力,也有国际市场部分大宗商品价格高位震荡形成的输入性通胀的影响,还有深化资源性产品价格改革、疏导突出价格矛盾的影响。三是发展中不平衡、不协调、不可持续问题依然突出。内外需结构仍不合理,一二三产业不协调,城乡和地区发展不平衡,能源资源消耗多,环境污染重,经济增长方式仍然粗放,这些都成为制约我国发展的重要因素。
 
From a domestic perspective, we are facing a slowdown in economic growth that is intertwined with soaring prices as well as prominent structural imbalances in the economy. First, there is the pressure for a slowdown in economic growth. Alongside decreasing external demand, there is an increasing number of factors constraining the increase of domestic demand, which include the increasing difficulty of maintaining rapid growth in personal income levels, the decreasing capacity and willingness of enterprises to invest, and the large number of obstacles hindering the expansion of private investment. Second, there are still many factors contributing to the rise in goods prices. These include production cost increases resulting from price increases in factors of production such as labor, land, energy and resources, imported inflation caused by the high-level price fluctuations of some bulk commodities in the international market, and also the effects of our efforts to deepen the reform of pricing systems for resource products and regulate prominent imbalances in their prices. Third, the problem of imbalanced, uncoordinated and unsustainable development is still serious. Domestic and external demand is irrationally structured; primary, secondary and tertiary industries are imbalanced; and the development between urban and rural areas and between different regions is uneven. At the same time, our economy is still characterized by an extensive growth mode, with high consumption of energy resources and serious environmental pollution. These are all important factors that are restricting China’s development.
 
2012年,处理好速度、结构、物价的关系,关键在于保持经济平稳较快发展和物价总水平基本稳定。我们要保持的经济增长,是物价总水平基本稳定条件下的增长,是总量平衡、结构优化的增长;同时,我们要保持的物价稳定,是经济平稳较快增长下的稳定,是发展中的稳定。但经济增长和物价稳定总体上往往是一对矛盾。只要增长速度、不顾物价稳定,或只要物价稳定、不顾增长速度都相对容易,难的是二者兼顾。当前,国际上流动性过剩和市场预期低迷并存,国内货币存量也较大,给“两个保持”带来很大压力。
 
In 2012, our efforts to balance the relationship between speed, structure and prices should be focused on sustaining steady and rapid economic growth and maintaining the overall stability of prices. We want economic growth to take place whilst the overall level of prices remains stable and in a way conducive to the optimization of the economic structure whilst overall supply and demand remain balanced. At the same time, we want price levels to remain stable whilst the economy continues to grow rapidly and steadily. However, economic growth and price stability often contradict each other. It is relatively easy to achieve rapid economic growth without price stability, or price stability without rapid economic growth, but difficult to achieve both. It is even more difficult at present due to the high domestic monetary stock combined with excess global liquidity and low market expectations.
 
处理好速度、结构、物价三者关系,必须加快调整经济结构。推进结构调整,有利于增强发展的可持续性,促进经济增长由政策刺激向自主增长转变,防止经济出现大的波动;有利于增加市场有效供给,抑制高耗能、高排放等不合理需求,消除总供给与总需求平衡的制约因素;有利于推动经济转型和模式创新,提高发展质量和效益,形成经济增长由内外需、三次产业协调拉动和科技教育管理支撑的新格局。发达国家在经济科技上长期占优势的压力,其他新兴经济体要素潜力正在发挥的现实,国际金融危机以来各国抢占未来发展制高点的竞争,都要求我国加快结构调整步伐。当前国内外经济环境的变化,对结构调整也形成一种“倒逼机制”。总之,发展必须转型,转型也是发展,是内生增长、创新驱动和结构优化的发展。我们必须顺势而为,乘势而上,变被动为主动,下大力气推进发展方式转变,推动经济结构调整向纵深发展。
 
We must accelerate our efforts to adjust the economic structure in order to balance the relationship between speed, structure and prices. Structural adjustment is conducive to enhancing the sustainability of development, promoting the transition from policy-stimulated growth to self-propelled growth, thus avoiding major fluctuations in the economy. It is conducive to increasing effective market supply, restricting irrational demands involving high energy consumption and high emissions, and eliminating the constraints on the balance between overall supply and overall demand. And it is also conducive to promoting the transformation of the economic pattern and innovation in the economic model, improving the quality and efficiency of development, and creating a new situation in which economic growth is stimulated in a balanced manner by domestic demand, international demand, and primary, secondary and tertiary industries, and supported by scientific, technological and educational management. The need for China to accelerate the pace of its structural adjustment has been spelt out by the pressure we have come under owing to the long-standing economic, scientific, and technological superiority of developed countries, the reality that other emerging economies are tapping into their potential factors of production, and the scramble for the future high ground in development that has been taking place between countries since the outbreak of the international financial crisis. The current changes in the domestic and international economic situations are compelling us to make structural adjustment. In summary, transformation is a necessity for development, and a form of development in its own right: a self-sustaining, innovation-driven, and structurally-optimal form of development. Acting in accordance with the situation, we must seize the initiative to push forward the transformation of the pattern of development and promote the in-depth restructuring of the economy.
 
中央经济工作会议提出了2012年经济发展的主要预期目标,对转变经济发展方式、调整经济结构和推进改革开放提出了明确要求。要按照中央决策部署,进一步加强和改善宏观调控,把握好调控的重点、力度和节奏,根据形势发展变化适时适度进行预调微调,处理好速度、结构、物价三者关系,有针对性地解决经济运行中的突出矛盾和问题,积极发挥规划、计划的导向作用,加强财政、信贷、产业等政策的协调配合,努力实现经济发展预期目标,推动经济发展方式转变和经济结构调整取得新进展,为在改革开放进程中深入实施扩大内需战略创造有利条件和良好环境。
 
The Central Economic Work Conference has outlined the major objectives for economic development in the year 2012. It has defined specific requirements in regard to transforming the pattern of economic development, adjusting the economic structure, and promoting reform and opening up. In our further efforts to strengthen and improve macro-control in accordance with the decisions and arrangements of the CPC Central Committee, we must correctly determine the focus, intensity, and pace of macro-control, and conduct the necessary pre-adjustments and fine-tuning at the appropriate junctures in line with the development of the situation, in order to balance the relationship between speed, structure and prices. We need to target prominent conflicts and problems in economic operation, actively give play to the guiding role of relevant plans, and strengthen the coordination of policies pertaining to public finance, credit and industrial development. Through these efforts, we will strive to realize our targets in economic development, make new progress in the transformation of the pattern of economic development and the restructuring of the economy, and create favorable conditions for the thorough application of the strategy of boosting domestic demand during the process of reform and opening up.

二、以扩大内需为战略基点加快推进经济结构调整
II. Boosting domestic demand is the strategic basis for economic restructuring
 
当今世界正处于大变革大调整之中,经济转型和结构调整成为国际大趋势。中国经济和世界经济已高度融合,在经济全球化、区域经济一体化、贸易自由化的大背景下推进现代化建设,必须不断提高我国开放型经济发展水平。要统筹国内国际两个大局,在进一步扩大开放中加快转方式、调结构。
 
The contemporary world is undergoing great changes and adjustments, with economic transformation and restructuring becoming an international trend. Considering the fact that the Chinese economy has become closely integrated into the world economy, it is important that we constantly enhance the openness of our economy in order to promote modernization against the backdrop of economic globalization, regional economic integration, and trade liberalization. By taking into account both domestic and international situations, we need to accelerate the transformation of our pattern of development and the adjustment of our economic structure while opening wider to the outside world.
 
调整经济结构最重要的是扩大内需。扩大内需是我国经济社会发展的战略基点。其一,扩大内需是有效应对国际金融危机的根本举措。过去两年,面对国际金融危机冲击,我们主要依靠扩大内需,实现了经济回升向好。当前,国际金融危机的深层次影响继续显现,受欧洲主权债务危机等的影响,我国出口增长出现明显回落态势。据有关方面预测,2012年国际贸易增长仍呈放缓态势。在这种情况下,为保持经济平稳较快发展,更需要发挥内需对经济增长的拉动作用。其二,扩大内需是加快转变经济发展方式的基本要求和首要任务。我们调结构、转方式,很重要的就是调整和转变需求结构。经过30多年改革开放,我国已经成为世界上第一出口大国,贸易依存度高于世界许多国家。随着全球贸易保护主义抬头,扩大出口遇到越来越多的摩擦、壁垒和障碍,国际竞争更趋激烈。国际经验表明,无论是发达国家,还是发展中国家,大国经济发展主要是靠内需。只有立足扩大内需,才能使我们的发展立于不败之地。其三,扩大内需是保持经济长期平稳较快发展的必由之路。我国人口众多、国土辽阔,是世界上最大的发展中国家,正处于发展的重要战略机遇期,市场空间大,回旋余地大,内需潜力大,对经济发展具有持久的拉动作用。因此,必须坚定不移地实施扩大内需战略,总结经验做法,针对现实问题,建立健全扩大内需的长效机制,牢牢掌握发展的主动权。
 
The most important way to restructure the economy is to boost domestic demand. Boosting domestic demand is a strategic foothold on which China’s economic and social development will be based. First, boosting domestic demand is the fundamental means of mounting an effective response to the international financial crisis. Over the last two years, by relying on boosting domestic demand as our primary means of response to the international financial crisis, we have been successful in getting the economy back on track. At present, the underlying effects of the international financial crisis are continuing to surface, and we have witnessed a clear slowdown in China’s export growth owing to the European sovereign debt crisis. In addition to this, there are also projections that the year 2012 will continue to witness a slowdown in international trade growth. Under such circumstances, it is even more important that we exert domestic demand as a stimulus of economic growth in order to maintain our steady and rapid economic development. Second, boosting domestic demand is a fundamental requirement of and a primary task for accelerating the transformation of the pattern of economic development. An important aspect of our efforts to adjust the economic structure and transform the growth pattern is to adjust and transform the demand structure. China has become the world’s largest exporter after over 30 years of reform and opening up, and is more reliant on trade than many other countries. However, with the emergence of global trade protectionism, the expansion of exports is being confronted with increasing friction, barriers and obstacles, and international competition is becoming increasingly fierce as a result. International experience tells us that large countries, developed or developing, owe their economic development mainly to domestic demand. Therefore, boosting domestic demand is the only way to place China’s development on permanently solid ground. Third, boosting domestic demand is an essential requirement of maintaining steady and rapid economic development on a long-term basis. China, with its large population and vast territory, is the world’s largest developing country, and is currently witnessing an important period of strategic opportunity. The huge prospective markets, large space for maneuver, and enormous potential domestic demand we enjoy will have a major bearing on the stimulation of economic development on a long-term basis. Therefore, we must commit ourselves to the strategy of boosting domestic demand. On the basis of past experiences and practices, we must work to address practical problems, develop long-term mechanisms to boost domestic demand, and seize the initiative for development.
 
扩大内需的最大潜力在于城镇化。促进城乡协调发展是内需的一大源泉。2011年我国城镇人口占总人口的比重超过50%,这是巨大的历史性变化。但总的看,我国城镇化依然明显滞后,不仅远低于发达国家,而且也低于世界平均水平。据有关方面统计,发达国家城市化率一般达到80%,人均收入与我国相近的一些发展中国家城市化率也在60%以上。我国正处于城镇化快速发展阶段,城镇化不仅可以扩大投资,而且能够促进消费,对扩大内需具有重要推动作用。国际上有经济学家曾经预言,中国的城镇化和美国的高科技是21世纪带动世界经济发展的“两大引擎”。有关方面数据表明,2010年我国农村居民消费水平为4455元,城镇居民为15900元,城镇居民消费水平是农村居民的3.6倍。按此测算,一个农民转化为市民,消费需求将会增加1万多元。城镇化率每年提高1个百分点,可以吸纳1000多万农村人口进城,进而带动1000多亿元的消费需求,而相应增加的投资需求会更多。目前我国农民工总量达2.4亿人,其中外出农民工约1.5亿人,农村还有相当数量的富余劳动力,城镇化蕴涵的内需潜力巨大。在城乡之间二元结构还没有得到根本改变的同时,城镇内部“二元结构”现象又在显现,后者既包括城镇居民与进城农民工及其家属之间在生产生活条件上形成的差异,也包括城镇历史遗留的棚户区困难群众与大多数市民之间在居住条件上的差异。这是我们面临的矛盾和困难,也是潜力所在。推动解决这种“双二元结构”问题,有利于促进城乡协调发展,减少社会矛盾,释放出城镇化带来的需求潜力。
 
The greatest potential for boosting domestic demand lies in urbanization. The coordinated development of urban and rural areas gives a major impetus to the growth of domestic demand. The year 2011 witnessed a historic transition of proportions as China’s urban population exceeded 50% for the first time. However, China’s urbanization is still lagging, not only being much lower than levels of urbanization seen in developed countries, but also lower than the world average. According to statistics, rates of urbanization generally reach 80% in developed countries, and have exceeded 60% in certain developing countries whose level of per capita income is similar to that of China. China is undergoing a rapid phase of urbanization which is not only promoting investment, but also stimulating consumption. For this reason, urbanization has a major bearing on boosting domestic demand. A foreign economist once predicted that China’s urbanization and US technology will be the two major engines behind world economic development in the 21st century. In 2010, consumer spending per capita of China’s urban population was 15,900 yuan, 3.6 times more than the 4,455 yuan of the rural population. Accordingly, it is estimated that for every rural resident who becomes an urban resident there will be an increase of over 10,000 yuan in consumer spending per year. Therefore, if China’s urbanization rate increases by one percentage point every year, meaning that 10 million rural residents become urban residents annually, this will create over 100 billion yuan in consumer spending and an even greater demand for investment. At present, there are 240 million rural workers in China, of whom 150 million are migrant workers. This indicates that we still have a large surplus rural labor force, but also points to the huge potential domestic demand that can be unlocked through urbanization. Meanwhile, we are facing another issue in the emergence of an intra-urban dualistic structure, while fundamental changes have yet to occur to the urban-rural dualistic structure. The intra-urban dualistic structure is manifested as disparities in working and living conditions between urban residents and rural migrant workers along with their families, and also as disparities in housing conditions between the residents of old run-down areas and other urban residents. Though these are problems and difficulties that we must confront, they are also where the potential for domestic demand lies. Resolving both of these dualistic structures will be conducive to promoting coordinated development between urban and rural areas, mitigating social conflicts, and unlocking the potential domestic demand brought about by urbanization.
 
稳步推进城镇化,必须在充分尊重农民意愿、切实维护农民权益、严格保护耕地的基础上进行。要研究制定我国城镇化发展的中长期规划,出台综合性的政策措施。加强城镇规划和管理,遵循城市发展的客观规律,考虑不同规模和类型城镇的承载能力,合理引导人口流向和产业转移,促进大中小城市和小城镇科学布局、合理分工、功能互补、集约发展。要抓紧制定并有序实施促进农民工融入城市的政策措施,推动城镇社会保障、医疗卫生、教育、文化等基本公共服务覆盖农民工并逐步实现均等化,帮助他们逐步解决就业、住房、医疗和子女教育等方面实际问题,放宽中小城市落户条件,把在城镇已稳定就业和居住的农民工有序转变为城镇居民。要研究出台规范的市政建设投融资政策,进一步完善土地管理制度,搞好综合交通运输体系与城镇化布局体系的衔接,加强公共交通、污染防治、水电气热供应等城镇基础设施建设。应当指出,房地产市场能否健康发展是我国城镇化进程中必须解决好的重大问题。要继续搞好房地产市场调控,巩固调控成果,积极推进保障性安居工程建设,有效增加普通商品住房供给,加快建立促进房地产市场平稳健康发展的长效机制,使城镇化稳步向前推进。
 
Our efforts to steadily promote urbanization must be carried out on the basis of fully respecting the will of rural residents, truly safeguarding their rights and interests, and strictly protecting farmland. We need to formulate plans for the medium and long-term progression of urbanization, and work out comprehensive policy measures for their implementation. Urban planning and management should be strengthened in accordance with the objective laws of urban development. By taking into account the varying capacities of different cities and towns in line with their scales and categories, we need to guide the population flow and industrial transfer in a scientific manner in order to ensure the scientific layout, rational division of labor, and intensive development of large, medium and small cities as well as small towns. Such efforts will also allow the functions of these areas to complement one another. We need to promptly formulate and systematically implement policy measures to promote the integration of rural migrant workers into urban areas. These measures should aim to ensure that rural migrant workers are covered by basic urban public services, such as social safety nets, medical care, education and cultural services, and that they gradually enjoy equal access to such services, with a view to gradually resolving the difficulties they experience in regard to employment, housing, medical care, and education for their children. We need to relax the criteria for permanent settlement in medium and small cities, and accommodate rural migrant workers with stable employment and residency as permanent urban residents in a step-by-step manner. We need to formulate standardized investment and financing policies on urban development, further improve the land management system, closely integrate the comprehensive transportation system with the layout of urban areas, and improve urban infrastructure for public transportation, pollution prevention, and the supply of water, electricity, gas and central heating. It should also be noted that the sound development of the real estate market is a major issue pertaining to China’s overall urbanization drive that must be properly addressed. Therefore, in order to steadily advance our urbanization, we must continue our regulation of the real estate market, consolidate the achievements that have already been made in this regard, actively promote the development of low-income housing projects, effectively increase the supply of general commercial housing, and accelerate the establishment of long-term mechanisms to promote the stable and sound development of the real estate market.
 
促进区域协调发展是扩大内需的又一源泉。要进一步实施区域发展总体战略和主体功能区战略,在推动东部地区转型发展的同时,更好地支持推进西部大开发、振兴东北地区等老工业基地、促进中部地区崛起,尤其是加大对老少边穷地区扶持力度。区域发展与城镇化密切相关。欠发达地区发展滞后,一个重要表现就在于城镇化滞后。在那些发展条件好、环境容量大的地区,应积极稳妥地推进城镇化,引导要素合理集聚、企业集中布局、土地集约利用,培育新的经济增长极,增强自我发展能力。国家的区域政策、产业政策、土地政策不能一刀切,要坚持分类指导、有保有控。对西部地区一些国家重点开发区域发展特色优势产业,在严格节能环保、确保质量安全、科学合理布局的前提下,实行差别化政策。
 
The coordinated development of different regions gives another major impetus to the growth of domestic demand. We need to further implement the strategies of overall regional development and development priority zones. In addition to transforming the development pattern of the eastern region, we need to devote more efforts to supporting the large-scale development of the western region, the invigoration of old industrial bases in the northeastern region, and the rise of the central region, with special focus given to old revolutionary base areas, ethnic minority areas, border areas, and poverty-stricken areas. Urbanization has a direct bearing on regional development; and an important feature of underdeveloped regions is lagging urbanization. We need to promote active and steady urbanization in regions with favorable conditions for development and large environmental capacity. By encouraging the rational cluster of factors of production, the centralized distribution of enterprises, and the intensive use of land, we will be able to foster new economic growth poles and strengthen the ability of these areas to develop independently. Instead of imposing uniformity in regional, industrial and land policies, the government should commit itself to providing guidance by category and guaranteeing the growth of some sectors while restricting the expansion of others. For example, we should implement differential policies for the development of competitive industries that display local characteristics in national key development areas of the western region, in order that requirements in regard to energy conservation and environmental protection, quality and safety, and scientific and rational distribution are met.
 
扩大内需的最大产业潜力在服务业。经过长期努力,我国已成为制造业大国,许多工业品产量居世界前列,“中国制造”的国际竞争力不断提高,未来发展有很大空间。相对来说,服务业发展滞后,是我国经济社会发展的一块“短板”,在国民经济中所占比重较低,据有关方面统计,2010年我国服务业占国内生产总值的比重为43.1%,不仅明显低于发达国家70%左右的平均水平,而且也低于中等收入国家53%左右的平均水平。应该说,无论是生产性服务业还是生活性服务业,在我国都有着旺盛的市场需求,发展潜力巨大。服务业绝大多数属于实体经济,同样能够创造社会财富和增强综合国力。服务业是最大的就业容纳器,是科技创新重要的驱动力量。工业化不仅要发展工业,而且需要发展服务业,工业与服务业融合发展也有利于提高工业发展的质量和竞争力。国家“十二五”规划提出,服务业增加值比重五年提高4个百分点,我们要努力工作,努力实现服务业发展的目标。
 
The service sector is undoubtedly the sector with the greatest potential for boosting domestic demand. Thanks to our long-term efforts, China has grown to become one of the world’s largest manufacturing nations, being among the largest producers of numerous industrial products. There is significant potential for the future development of made-in-China products, which are becoming increasingly competitive in the international market. Relatively speaking, our lagging service industry is the weak link in our economic and social development. According to statistics, the service industry accounts for a relatively low proportion of China’s national economy, only 43.1% of the country’s GDP in 2010. This is not only much lower than the average level of 70% in developed countries, but also lower than the average level of 53% in middle-income countries. It should be recognized that China has strong market demand for both producer services and consumer services, and that the potential for development in both of these sectors is huge. Service industries, the majority of which constitute part of the real economy, are equally capable of creating social wealth and raising our overall national strength. The service sector is also the largest creator of jobs and an important driving force behind scientific and technological innovation. Industrialization requires not only the development of the manufacturing industry, but also the development of the service industry, because the integrated development of manufacturing and services is conducive to improving the quality and competitiveness of industrial development. The Twelfth Five-Year Plan has set forth the target of increasing the share of added-value of service industry in the GDP by four percentage points over the space of five years. We must work hard in order to reach this target.

促进服务业加快发展,是产业结构调整的重点所在。要采取有效措施,为服务业发展创造有利环境,扩大服务业规模,提高服务业水平。加快发展现代物流、电子商务、科研设计等生产性服务业,大力发展旅游、健身、养老、家政等生活性服务业,扶持中小型服务企业发展。同时,要积极推动战略性新兴产业、高技术产业和先进制造业发展,努力掌握核心技术,形成竞争新优势,开拓市场尤其是培育国内市场需求,促进产业优化升级。
 
Accelerating the development of the service industry is the focal point of industrial restructuring. We need to take effective measures to create a favorable environment for the development of the service industry so as to expand its scale and raise its standards. We need to accelerate the development of producer services such as modern logistics, e-commerce and scientific research and design, vigorously develop consumer services such as tourism, fitness, elderly care, and household management, and provide support for the development of small and medium-sized service enterprises. At the same time, we need to actively promote the development of strategically important emerging industries, high-tech industries, and advanced manufacturing industries in order to master core technologies, create new competitive edges, expand our markets, and in particular nurture domestic demand. Doing so will provide a boost for the optimization and upgrading of our industries.
 
需要强调指出的是,在工业化、城镇化发展过程中,必须同步推进农业现代化,实现“三化并举”。无论是稳增长、控物价,还是扩内需、调结构、推进城镇化,都要靠夯实“三农”基础来支撑。要坚持不懈抓好“三农”工作,加大强农惠农富农政策力度,加快农业科技创新,强化农村基础设施建设,推进新农村建设,严格保护耕地,继续稳定粮食种植面积,着力提高主要农产品综合生产能力,保障粮食安全,促进农业稳定发展、农民持续增收和农村全面发展。
 
It must be emphasized that we need to promote the modernization of agriculture in step with industrialization and urbanization. Initiatives concerning agriculture, rural areas, and rural residents represent an essential foundation of our efforts to ensure stable growth, control goods prices, boost domestic demand, adjust the economic structure, and promote urbanization. Therefore, we need to commit ourselves to initiatives concerning agriculture, rural areas and rural residents by formulating more effective policies to strengthen agriculture, benefit rural residents, and allow people in rural areas to prosper. We need to accelerate scientific and technological innovation in agriculture and strengthen rural infrastructure in order to promote the development of a new countryside. In addition to strictly protecting farmland and maintaining the area of crop-growing land, we should strive to increase the comprehensive production capacity for major agricultural produce in order to guarantee food security, thereby promoting the steady development of agriculture, the constant increase in rural incomes, and the overall development of rural areas.
 
消费需求是最终需求。无论是从应对当前挑战的实际需要看,还是从长远发展的根本目的看,都必须把扩大消费特别是居民消费放到扩大内需更加突出的位置。长期以来,我国经济增长主要依靠投资拉动,投资率高,消费率低。按有关方面数据,2010年我国消费率为47.4%,远低于美国的87.7%、欧盟的80.7%、日本的78.6%,也明显低于中等收入国家平均67%左右的水平。我国消费潜力巨大,但还没有得到有效发挥,在实际工作中,扩大投资的办法较多,扩大消费的办法较少,这种状况必须扭转。要完善鼓励居民合理消费的财税、信贷等政策,着力改善消费环境,培育新的消费热点,尤其要增强居民消费能力。为此,要深化收入分配制度改革,调整国民收入分配格局,逐步理顺收入分配关系,努力实现居民收入增长和经济发展同步、劳动报酬增长和劳动生产率提高同步,多渠道增加低收入者收入,提高中等收入者比重。在初次分配中,鼓励群众就业创业,合理提高劳动者报酬;同时,发挥好再分配的调节作用,健全养老、医疗、失业等保障制度,推进基本公共服务均等化,构筑社会保障安全网,为就业创业者解除后顾之忧。
 
Consumer demand is the ultimate form of demand. Regardless of whether we are responding to current challenges or setting our sights on our fundamental long-term objectives for development, the fact remains that we must place a greater emphasis on boosting consumption, and particularly consumer spending, in our efforts to boost domestic demand. China’s economic growth has long been stimulated by investment, with investment being high and consumption being low. According to statistics, China’s ratio of consumer spending to GDP was 47.4% in 2010, which was not only far below the 87.7% of the US, 80.7% of the European Union, and 78.6% of Japan, but also significantly lower than the average level of around 67% for middle-income countries. The huge potential for consumption in China has yet to be fully tapped. While we have ample levers to increase investment, we have few means to shore up consumption, and this is a situation that must be changed. We need to improve fiscal and credit policies aimed at encouraging rational consumer spending, strive to create a more favorable environment for consumer spending, and nurture new hot spots in this regard, with the emphasis on enhancing the spending power of residents. In order to do this, we need to deepen the reform of the income distribution system, adjust the distribution of national income, and gradually balance the relations of income distribution. Through these efforts, we should strive to synchronize personal income growth with the pace of economic development and synchronize the growth of labor remuneration with the increase in labor productivity. We should also employ various means to raise the income level of low earners and increase the size of the middle-income population. In the primary distribution, we need to encourage people to find jobs and start businesses in addition to rationally increasing labor remuneration. We also need to give full play to the role of secondary distribution in regulating income. Efforts must be made to improve insurance systems, such as pensions, medical care, and unemployment, and to promote universal standards in basic public services with a view to establishing a social safety net and addressing the apprehensions of employees and start-up employers.
 
保持经济平稳较快发展,扩大消费是基础,稳定投资是关键,要善于发挥投资手段的直接拉动作用。应对国际金融危机的实践表明,方向正确的投资见效快、关联度大,对经济增长具有明显的拉动作用。2012年中央预算内投资要重点保障在建和续建项目的资金需求,防止出现“半拉子”工程,积极有序地开工建设国家“十二五”规划确定的重大项目。要在保持投资合理规模的同时,把工作重点放到优化投资结构、提高投资质量效益上来。要把投资与消费更好地结合起来,形成增投资与扩消费的良性互动。要发挥好政府投资的引导作用,继续向“三农”、水利、欠发达地区、社会事业、科技创新、节能减排以及铁路、公路等公共基础设施等领域倾斜,释放内需潜力,拓展发展空间。
 
While boosting consumption is the foundation of our efforts to maintain steady and rapid economic growth, stabilizing investment is the key. Therefore, we need to give full play to the role of investment in directly stimulating the economy. Our experiences in responding to the international financial crisis have shown that investment in the right places is able to take rapid effect across numerous sectors, thereby playing a significant role in stimulating economic growth. The focus of investment from the central budget in 2012 needs to be placed on ensuring the availability of funds for projects under construction and ongoing projects, so as to prevent projects from being abandoned before completion and allow major projects determined by the Twelfth Five-Year Plan to be carried out in an active and orderly manner. In addition to maintaining the rational scale of investment, we need to shift the focus of our efforts towards optimizing the investment structure and improving the quality and efficiency of investment. We need to link investment to consumption, so as to achieve virtuous interaction between the two. We need to give full play to the guiding role of government investment by continuing to tilt investment towards initiatives concerning agriculture, rural areas and rural residents, water conservation projects, underdeveloped areas, social programs, scientific and technological innovations, energy conservation and emissions reduction, and public infrastructure such as railways and highways, in order to unlock potential domestic demand and expand the scope of development.
 
扩大内需,调整结构,需要统筹国内发展和对外开放。在当前外需疲软的形势下,要保持外贸政策的连续性和基本稳定,保持出口平稳增长,推动出口结构升级,努力拓展新的市场。同时,要继续把扩大进口作为战略措施来抓,积极扩大进口尤其是先进技术装备、关键零部件和重要能源原材料进口,提升我国经济发展整体水平。要着眼全球范围配置资源和要素,统筹“引进来”与“走出去”,扩大境外投资合作,并以此带动贸易、技术、能源资源等合作,积极防范境外投资风险。
 
Our efforts to boost domestic demand and adjust the economic structure require overall planning over domestic development and opening up to the outside world. Against the backdrop of weak external demand, we need to maintain the continuity and basic stability of our foreign trade policies to sustain the steady growth of exports, promote the upgrading of the export structure, and strive to expand into new markets. At the same time, by continuing to regard import expansion as a strategic measure, we need to actively expand imports, and especially the import of advanced technological equipment, key components, important energy resources and raw materials, with a view to enhancing the overall level of our economic development. We need to manage the allocation of resources and factors of production on a global scale, balance the strategies of “bringing in” and “going global,” expand overseas investment cooperation, and use this as a means of promoting overseas cooperation concerning trade, technology, and energy resources whilst actively preventing relevant risks.

三、把发展的出发点和落脚点放在保障和改善民生上
III. The purpose and objective of development is to ensure and improve public well-being
 
民生连着内需、连着发展、连着公平。保障和改善民生,既拉动消费,又增加投资,是扩大内需的重要举措和有效途径。目前我国人均国内生产总值已达5000美元,人民群众对保障和改善民生的需求日益增长,民生领域巨大的内需潜力会持续加快释放。加大民生投入,本身就是结构调整,是转方式的应有之义。要适应群众的新期盼和形势的新要求,把民生工作放到经济工作的重要位置,把重大民生工程摆在发展工程的优先序列,努力在保障和改善民生上取得新成效。
 
Public well-being is closely linked to domestic demand, development, and fairness. Ensuring and improving public well-being will serve to stimulate consumption and increase investment. Therefore, these are important measures and effective approaches for the boosting of domestic demand. At present, China’s GDP per capita has reached US$5,000, leading to constantly increasing demands for public well-being to be ensured and improved. Therefore, the huge potential of domestic demand related to public welfare programs will continue to be unlocked at a faster pace. Increased investment in public welfare programs is in essence a structural adjustment, and an inherent requirement for transforming the pattern of development. In responding to new public expectations and the new requirements of the current situation, we need to place a stronger emphasis on public welfare initiatives in our economic work, and place public welfare projects higher up on the list of development priorities. Efforts must be made to achieve new progress in ensuring and improving public well-being.
 
实施好重大民生工程,要按照保基本、广覆盖、可持续的原则,坚持统筹兼顾、突出重点、因地制宜,做到积极而为、量力而行、循序渐进,有计划有步骤地推进,逐步扩大基本民生保障的覆盖面,并随着经济发展不断提高保障的水平。
 
In accordance with the principles of guaranteeing basic needs, ensuring broad coverage, and maintaining sustainability, we need to carry out major public welfare projects by making overall plans, emphasizing areas of priority, and taking local conditions into due consideration. These efforts need to be actively carried out in accordance with our capacity and in a planned and step-by-step manner. By doing so, we will be able to gradually expand the coverage of basic public welfare programs, and constantly raise relevant standards in line with our economic development.
 
保障性安居工程建设既关系民生也关系发展。加快推进保障性安居工程建设,是中央的重大决策,具有惠民生、稳房价、扩内需、促发展的多重作用。过去一年,各地区、各有关部门积极努力,克服种种困难,实现了新开工建设1000万套保障性住房的目标,为“十二五”时期建设3600万套保障房开了一个好头。通盘考虑总体任务和各地情况,2012年将新开工建设保障性安居工程700万套以上,基本建成500万套。新开工加上结转的项目,保障房在建规模大,质量要求高,资金需求多,任务更加艰巨。中央财政资金和预算内投资将继续加大对保障性安居工程的支持力度。地方政府债券的使用,要更多向保障房倾斜。允许符合条件的地方融资平台公司发行企业债券,用于保障性安居工程及其配套基础设施建设。保障房的土地供应实行指标单列,由国家直接下达到地方。要抓紧落实2012年保障房建设计划,安排好所需资金和土地,确保按时开工和如期竣工,确保工程建设质量,确保公开公平公正分配。
 
The development of low-income housing projects is related to both public well-being and development. The major policy decision of the CPC Central Committee to accelerate the development of low-income housing projects has been made with a view to improving public welfare, stabilizing property prices, boosting domestic demand, and promoting economic development. During the past year, localities and relevant departments across the country have overcome various difficulties to launch the construction of 10 million low-income housing units, marking a good start towards the goal of building 36 million low-income housing units during the Twelfth Five-Year Plan period. Taking into account the overall task as well as local conditions, we are aiming to launch the construction of 7 million low-income housing units and basically complete 5 million units in the year 2012. With a large number of low-income housing projects under construction, consisting of newly-launched projects as well as those that have been carried over, our task will be made more arduous by the need to meet high quality standards and secure large amounts of funding. We will continue to support low-income housing projects through increases in central budget expenditure and budgetary investment. The use of local government bonds also needs to be tilted in favor of low-income housing. Moreover, we should allow eligible local financing platform companies to issue corporate bonds to fund the development of low-income housing projects and their supporting infrastructure. The land supply quota for low-income housing should be listed separately, and directly assigned to local governments by the central government. We need to promptly implement plans for the development of low-income housing projects in 2012 by arranging the necessary funds and land. Our efforts should be aimed at ensuring that construction projects are launched and completed on schedule, that quality standards are met, and that the distribution of housing units is fair, open and impartial.
 
棚户区改造是保障性安居工程的重要组成部分。居住在棚户区的群众大多收入低、生活困难、住房条件窘迫。近几年各地区和有关方面棚户区改造取得积极成效,但随着工作深入推进,需要改造的量可能比原来预计的要大。2012年要继续把棚户区改造作为保障性安居工程建设的重点任务,加强沟通协调,完善棚户区改造政策,搞好统筹安排,扎实加以推进。
 
The renovation of run-down areas is an important aspect of low-income housing projects. Residents of run-down areas are mostly low earners with financial difficulties who live under very poor conditions. In recent years, various localities and relevant organizations have made significant progress in the renovation of run-down areas. However, as our initiatives in this regard have progressed, we have found that the number of areas that need to be renovated is greater than originally estimated. In 2012, we should continue to regard the renovation of run-down areas as a major task in the development of low-income housing projects. We need to strengthen communication and coordination, improve policies pertaining to the renovation of run-down areas, and make overall arrangements in an effort to steadily advance our initiatives in this regard.
 
医药卫生体制改革是一个世界性难题,我国新医改既是一项重大改革举措,也是一项重大民生和发展工程。医改实施近三年来,五项重点改革稳步推进,基本医疗保障制度惠及全国95%的城乡居民,基本药物售价明显下降,改革取得了阶段性重要进展和显著成绩。2012年是深化医改新任务的起始之年,也是攻坚之年。随着医改进入深水区,难点问题将集中显现,体制性矛盾将集中暴露,工作难度还会加大。下一步,要认真总结医改的经验和做法,抓紧制定“十二五”期间深化医改规划,按照保基本、强基层、建机制的思路,加快推进各项重点工作。要推进基本医保由“扩大范围”转向“提升质量”,在继续提高参保率的基础上,进一步提升政府补助标准和报销比例,推进付费方式改革,完善城乡医疗救助制度和补充医疗保险制度。要巩固完善国家基本药物制度,健全基本药物定价机制,建立基层医疗卫生机构运行新机制。要全面推进公立医院改革,重点实施县级医院综合改革试点,在大医院推行便民利民措施,优化诊疗流程,创新管理体制机制,探索政事分开、管办分开、医药分开、营利性与非营利性分开的公立医院发展新模式。同时,要推动形成多元办医格局,适应和满足群众多样化的医疗卫生服务需求。
 
The reform of health care systems is a challenge that many countries face. China’s new round of health care reforms is both a major reform measure and a major project for public well-being and development. Since our new round of reforms was launched three years ago, we have made steady progress in our five priority tasks. Basic medical insurance now covers 95% of China’s urban and rural residents, and the selling price of basic drugs has been significantly lowered, marking important progress and outstanding achievements in the current stage of our reforms. The year 2012 marks the launch of new tasks to deepen reform, and is crucial to our efforts in this regard. As reform deepens, difficult issues and institutional conflicts will emerge in quick succession, and the difficulty of our tasks is set to increase. In the next step, we need to learn from the experiences and methods of our prior reforms, promptly formulate plans to deepen reform during the Twelfth Five-Year Plan period, and accelerate our various priority initiatives in accordance with the principle of guaranteeing basic needs, strengthening the community-level institutions, and establishing mechanisms. We need to shift the focus of basic medical insurance from expanding coverage to improving quality. Whilst continuing to increase the coverage rate, we need to further raise the standards of government subsidies and reimbursement rates for medical expenses, promote the reform of payment methods, and improve the medical assistance system and supplemental medical insurance system for urban and rural areas. We need to consolidate and improve the national basic drug system, improve the basic drug pricing mechanism, and establish new operation mechanisms for community health clinics. Moreover, we need to promote the overall reform of public hospitals, put emphasis on launching trials for the comprehensive reform of county level hospitals, and carry out measures in large hospitals to benefit people and afford them with convenience. We also need to optimize diagnosis and treatment procedures, and make innovations in management institutions and mechanisms. To do this, we must probe into a new development pattern for public hospitals that is characterized by the separation of government administration from hospital operation, the separation of regulation from operation, the separation of medical services from pharmaceutical services, and the separation of commercial and non-profit medical institutions. At the same time, we need to promote the diversity of medical institutions to cater to diverse demands for medical care services.
 
在实施重点民生工程过程中,要按照“十二五”规划的要求和部署,全面推进就业、社会保障、教育、文化等领域的改善民生行动计划,坚持以人为本、执政为民、服务为先,通过增加政府投入、完善政策措施、创新体制机制等手段,推进基本公共服务均等化,努力使发展和改革成果惠及全体人民。
 
While carrying out major public welfare projects, we need to comprehensively promote action plans to improve public well-being in the fields of employment, social security, education, and culture in accordance with the requirements and arrangements of the Twelfth Five-Year Plan. Committing ourselves to the principles of putting people first, governing for the people, and giving priority to serving the people, we must work to promote universal standards in basic public services by increasing government expenditure, improving policy measures and making innovations in institutions and mechanisms, so that all people may benefit from the achievements of development and reform.

四、坚定不移推进重点领域和关键环节改革
IV. Committing ourselves to reforms in important areas and key aspects
 
解决中国一切问题的关键是发展,发展必须转方式,而转方式最大的瓶颈制约在体制机制障碍,许多方面不改革就难以转变和发展。我国改革已进入攻坚阶段,面临的都是难啃的“硬骨头”,必须以更大的决心和勇气推进改革。要把发展与改革更好地结合起来,统筹谋划改革思路和举措。要加强改革的顶层设计和统筹协调,尊重基层和群众的首创精神,研究制定改革的思路和政策,力求在深化改革开放上取得新突破。
 
Development is the solution to all of China’s problems. However, the way we develop must be transformed; and the major bottleneck constraining this transformation is institutional and structural obstacles. Without reforms in many areas and aspects, we will be unable to achieve transformation and development. China’s reform has entered a crucial period in which many extremely difficult challenges must be taken on, and this calls for greater determination and courage to push reform forward. We need to better integrate development and reform by making overall plans for reform approaches and measures. We need to strengthen top-level design and the overall coordination of reform, respect the innovation of local communities and the general public, formulate reform approaches and policies, and strive to make new breakthroughs in deepening reform and opening up.
 
深化价格体制改革。价格是市场经济资源配置的“信号灯”,是调节市场行为的有力杠杆。我国价格改革已取得重要进展,绝大多数商品和服务价格已由市场决定。但在能源资源、公共事业、环保收费等领域,价格不合理的问题仍比较突出,必须深化改革。我国能源资源短缺,同时消耗和浪费却很严重。2010年我国煤炭产量达32.4亿吨,占全球的48%;粗钢产量达6.37亿吨,占全球的45%。我国已成为世界能源消费第一大国,单位国内生产总值能耗高于世界平均水平,这种粗放型增长方式难以为继。破解资源环境难题,既要加快淘汰落后产能、抑制高耗能高排放行业过快增长,也要合理控制能源消费总量,从根本上还要靠体制机制改革。要深化资源性产品价格改革,理顺煤、电、油、气、水、矿产等资源性产品价格关系,使其更好地反映市场供求关系、资源稀缺程度和环境损害成本。如试行居民阶梯电价制度,就是考虑兼顾公平与效率,促进节约与环保,是资源性产品价格改革的方向。与此同时,对水、天然气等产品的阶梯价格改革方案,也要抓紧研究。对居民基本需求范围内的价格,应合理控制,对非基本需求方面的价格,则应更多采取市场调节的手段。要继续完善煤电价格联动机制。通过采取这些改革举措,保障经济平稳运行,推动节能减排和结构调整。需要注意的是,实施价格改革,不能把经济增长速度打得太满从而使经济关系绷得过紧,这样才能为改革留出空间。
 
First, price reform needs to be deepened. In a market economy, prices determine the flow of resource allocation, serving as a powerful lever to regulate market behavior. Important progress has been made in China’s price reforms, with the prices of most commodities and services now being determined by the market. However, the problem of irrational pricing is still prominent in regard to energy resources, public services, and environmental protection fees. This calls for greater efforts to deepen reform. China faces a shortage of energy resources, but despite this, our consumption of resources remains high and even wasteful. In 2010, China’s coal output reached 3.24 billion tons, accounting for 48% of the world output; crude steel output reached 637 million tons, accounting for 45% of the world output. China has become the largest energy consumer in the world, with energy consumption per unit of GDP being higher than the world average. This extensive mode of development is unsustainable. In order to resolve difficult issues concerning resources and the environment, we need to step up efforts to eliminate backward production capacity, constrain the rapid growth of energy-intensive industries with high emissions, and rationally control total energy consumption. The fundamental means of achieving this is to rely on institutional and structural reforms. We need to deepen the price reform of resource products. This involves balancing the prices of resource products such as coal, electricity, oil, gas, water, and minerals, so that their prices can better reflect resource scarcity, supply and demand conditions in the market, and the cost of environmental damage. For example, our trials for the tiered pricing of household electricity represent the right direction for the price reform of resource products. This is because tiered pricing gives consideration to both efficacy and fairness, and is able to promote energy conservation and environmental protection. At the same time, we also need to promptly work out plans for the tiered pricing of water and natural gas. We need to rationally control prices for basic domestic consumption, and allow the market to regulate prices for non-essential consumption. We need to continue to improve mechanisms to tie the prices of coal and electricity. Through these reform initiatives, we will be able to ensure the steady operation of the economy while promoting energy conservation, emissions reduction, and structural adjustment. It should be noted that when carrying out price reform, we should avoid overly high estimates of economic growth, which may result in overly tight economic relations, in order to leave room for reform.
 
深化财税金融体制改革。要把财税体制改革与稳增长、调结构、惠民生更好结合起来,加快构建有利于转变发展方式的财税体制。同时,要健全金融体制,加强金融监管,防范金融风险,维护金融稳定和安全。一是按照财力和事权相匹配的要求,进一步理顺各级政府间财政分配关系,增加一般性转移支付规模和比例,加强县级政府提供基本公共服务的财力保障。二是完善预算编制和执行管理制度,提高预算完整性和透明度。三是合理调整消费税征收范围和税率,研究将部分高消耗、高排放的产品纳入消费税征收范围;逐步扩大房产税改革试点;研究制定环境保护税费改革等方案。四是继续深化国有控股大型金融机构改革,积极培育中小金融机构,促进资本市场特别是债券市场健康发展,深化利率市场化改革和汇率形成机制改革,有序推进人民币资本项目下可兑换,推进人民币跨境使用。
 
Second, the reform of the taxation and financial systems needs to be deepened. We need to better integrate the reform of the taxation system with our efforts to stabilize economic growth, adjust the economic structure, and benefit the people. This should lead to the establishment of a taxation system that is conducive to the transformation of the pattern of development. At the same time, we should take the following measures to improve the financial system, strengthen financial regulation, prevent financial risks, and guarantee financial stability and security. First, in accordance with the principle of making the financial resources of governments more proportionate to their duties and responsibilities, we need to further balance budgetary distribution between governments at all levels, increase the scale and proportion of general transfer payments, and provide a stronger financial guarantee for the provision of public services by county governments. Second, we need to improve the way that budgets are formulated and the way that their implementation is managed to make budgets more comprehensive and transparent. Third, we need to rationally adjust the scope and rate of consumption taxes and work out means of imposing consumption tax on certain energy-intensive products whose production causes high emissions. We should also gradually expand trials for the reform of real estate tax, and formulate plans for the reform of taxes and fees concerning environmental protection. Fourth, we need to continue to deepen the reform of large-scale state-controlled financial institutions, actively nurture small and medium-sized financial institutions, and promote the sound development of the capital market and especially the bond market. We need to deepen reforms to make interest rates subject to market forces and improve the RMB exchange rate regime, promote RMB capital account convertibility in a step-by-step manner, and expand the use of RMB in cross-border trade.
 
深化投资体制改革。企业是市场经济的主体,也是扩内需、调结构的主体。要正确处理政府与企业的关系,充分发挥企业的自主权和积极性。要进一步放宽市场准入。认真落实好鼓励和引导民间投资的“新36条”,抓紧研究打破垄断、公平准入、鼓励竞争的具体政策,鼓励民间投资进入铁路、市政、金融、能源、社会事业等领域。还要进一步减少投资审批事项,国家只审批或核准政府投资项目与关系国家经济安全、涉及整体布局和影响资源环境的事项,简化审批环节,规范审批程序,强化服务监督,为经济发展营造良好环境。
 
Third, the reform of the investment system needs to be deepened. Enterprises play the principal role in the market economy, and in efforts to boost domestic demand and adjust the structure of the economy. We need to balance the relationship between the government and enterprises by giving full play to the independent operation and initiative of enterprises. Restrictions on market access must be further relaxed. In a conscientious effort to implement the State Council’s New 36 Articles for encouraging and guiding private investment, we must act promptly to formulate concrete policies on dismantling monopolies, promoting equal market access, and encouraging competition, so as to encourage private investment in sectors such as rail transport, urban development, banking, energy, and social programs. We also need to scale back the scope of administrative reviews for proposed investments. Government review and approval should only be required for government funded projects and items that have a direct bearing on national economic security, the overall situation, resources, and the environment. Through efforts to simplify approvals, standardize approval procedures, and improve relevant services and supervision, we will work to create a favorable environment for economic development.

五、在稳中求进中促进经济社会协调发展
V. Promoting coordinated economic and social development while seeking steady progress
 
2012年是我国发展进程中非常重要的一年。突出把握好稳中求进的工作总基调,不仅要保持经济平稳较快发展和物价总水平基本稳定,而且要在转方式、促改革、惠民生上取得新进展。为此,必须把加快转变经济发展方式贯穿于经济社会发展全过程和各领域,在推动经济发展的同时,更加注重加强社会建设,促进经济社会协调发展。
 
The year 2012 is an extremely important year for China’s development. In line with the keynote of making progress amidst stability, not only must we sustain steady and rapid economic growth and maintain the overall stability of prices, we must also make new progress in transforming development patterns, promoting reform, and benefiting the people. In order to achieve this, we must integrate our efforts to accelerate the transformation of the pattern of economic development into all aspects of economic and social development and place a greater emphasis on improving social development whilst working to promote economic development. Doing so will allow us to promote coordinated economic and social development.
 
加强社会建设,有利于扩大内需、优化发展,提高人民群众生活质量和水平。要合理划分“基本”与“非基本”的范围。我们所要完善的公共服务体系,大致可分为基本公共服务和非基本公共服务两个部分。从我国情况看,基本公共服务主要包括公共就业服务、基本养老、义务教育、基本医疗卫生、保障性住房、公共文化、基本环境质量以及公共安全等服务类别,旨在保障全体公民特别是低收入群众生存发展的基本需求,这是公共服务中最基础、最重要的部分,公益性较强,政府担负着义不容辞的主体责任。非基本公共服务是指满足公民多层次、多样化发展需求的服务类别。如按比例划分,多数人的需求主要依靠市场提供,还可以通过发挥社会力量作用、支持和引导社会互助来提供。这既能为社会资本开辟更大的投资空间,利用市场机制加快社会领域发展,促进社会和谐,又能使政府腾出财力、集中精力,更好地履行保基本的职责。需要强调的是,基本与非基本的划分并不是一成不变的,应随着经济发展水平和财政保障能力的提高,合理扩大基本公共服务范围和调整标准。
 
Strengthening social development is conducive to boosting domestic demand, optimizing development, and raising the living standards of the people. We need to rationally define the scope of basic and non-basic needs. The public service system we are seeking to develop can roughly be divided into two parts: basic and non-basic. Under China’s current conditions, basic public services mainly include public employment services, basic pension insurance, compulsory education, basic medical and health care, low-income housing, public cultural services, basic environmental quality, and public security. These services aim to ensure that the basic needs of all citizens, especially low earners, are met. As the most fundamental and important form of public services, basic public services are characterized by their public welfare nature. As such, the government is obligated to play the main role in the provision of such services. Non-basic public services refer to services that aim to satisfy the diverse needs of citizens. Speaking proportionately, the needs of most people should be catered to by the market. In addition, this can be complemented by the participation of social forces, with efforts to support and guide mutual aid. This will not only provide for the growth of non-government investment, accelerate the development of social services by tapping market forces, and promote social harmony, but will also free up the government’s financial resources and allow it to better carry out its obligation to ensure basic needs. It should be emphasized that the dividing line between basic and non-basic needs is not fixed. We should rationally expand the scope and adjust the standards of basic public services in line with the increasing levels of economic development and public finance guarantees.
 
加强社会建设,要正确处理社会领域事业与产业的关系。社会领域既包括义务教育、公共卫生、公共文化、群众体育等主要由政府提供的服务型事业,也包括培训服务、非基本医疗、文化产业、体育健身等主要由市场提供的服务型产业,具有就业吸纳能力强、社会和市场需求潜力大以及能耗低、污染小等特点,发展前景十分广阔。协调推进经济发展和社会建设,既要维护社会事业的公益性,又要推进社会领域产业的市场化、产业化,积极培育新的增长点。例如,医疗服务业是一个大产业,应当也可以成为我国服务业中的重要产业。据世界银行统计,一些发达国家的医疗服务支出占国内生产总值的比重达到或超过10%,美国高达17.6%;一些发展中国家也达到6%~8%,而我国目前还不到5%。如果与养老、保健、助残、家政等服务结合起来,潜力和空间更大。
 
In order to strengthen social development, we need to balance the relationship between public programs and industries for the provision of social services. Social services consist of government-provided public service programs, such as compulsory education, public health care, public cultural services, and public sports, as well as market-oriented service industries, such as training services, non-basic medical care, cultural industries, and sports and fitness services. Both sectors are characterized by a strong capacity to absorb labor, significant potential for social and market demands, low energy consumption, and little pollution, and therefore enjoy broad prospects for development. In order to promote coordinated economic and social development, not only must we maintain the public welfare nature of social programs, but we must also subject industries engaged in the provision of social services to market forces and promote their development as industries in an active effort to foster new growth areas. For example, the medical services industry is a large-scale industry which can and should become a major aspect of China’s service industries. According to World Bank statistics, health care spending can account for 10% or more of the GDP in some developed countries. In the US, this total is as high as 17.6%; in some developing countries, it can reach 6% to 8%; but in China, it is less than 5%. When combined with services such as elderly care, wellness services, disability assistance, and household management, medical services will have even larger potential for development.
 
加强社会建设,要重视解决关系人民群众切身利益的问题。如物价问题,直接关系老百姓日常生活,影响千家万户。要处理好推进价格改革与保持物价总水平基本稳定的关系,在出台价格政策和改革方案时,要把各种因素考虑得更周全一些,充分考虑群众的承受能力,努力把握好时机和力度,切实保障基本民生,努力把影响控制在合理水平。又如煤电油气运供应问题,与工农业生产和人民生活密切相关,常常处于“紧平衡”状况。要从保民生、促和谐的高度,加强部门和地区协调,优化组织调度,采取增加生产、实行需求侧管理、推进运输通道建设等措施,提高煤电油气运供应能力;同时,完善各类应急预案,增强应对突发事件的能力,切实保障国家能源资源安全,保障人民群众正常生活,使内需特别是消费潜力持续发挥。
 
In order to strengthen social development, we need to focus on resolving issues affecting the immediate interests of the people. For example, the issue of goods prices has a direct bearing on the daily life of all households. We need to approach the issue of price reform whilst maintaining the overall stability of prices. When formulating price policies and relevant reform plans, we need to take various factors into account, fully consider the ability of the public to cope, and strive to act at the appropriate junctures and with the right degree of intensity, so as to keep the impact of changes within rational levels and ensure that public well-being is safeguarded. Another example is the supply of coal, electricity, oil, gas and transport. These supplies are closely tied to industrial and agricultural production as well as people’s everyday lives, and there is often a tight balance between their supply and demand. In accordance with the principle of ensuring public well-being and promoting social harmony, we need to strengthen coordination between different departments and regions, optimize organization and regulation, and adopt measures such as increasing production, carrying out management on the demand side, and promoting the development of transport thoroughfare, in order to improve our ability to supply coal, electricity, oil, gas and transport. At the same time, we need to improve various emergency response plans and strengthen our ability to respond to emergency situations. By effectively guaranteeing national energy security and ensuring that people’s everyday lives are free from disruption, we will be able to tap into our potential domestic demand, and in particular consumer spending, on a constant basis.
 
新的一年,发展改革工作任务艰巨、责任重大。让我们更加紧密地团结在以胡锦涛同志为总书记的党中央周围,高举中国特色社会主义伟大旗帜,以邓小平理论和“三个代表”重要思想为指导,深入贯彻落实科学发展观,继续保持和发扬昂扬向上、奋发有为的精神状态,再接再厉,扎实工作,为推进改革开放和经济社会发展作出新的更大贡献,以优异的成绩迎接党的十八大胜利召开!
 
Successfully carrying out our development and reform initiatives in the year 2012 will be an arduous task and a great responsibility. Let us rally more closely around the CPC Central Committee with Hu Jintao as General Secretary; hold high the great banner of socialism with Chinese characteristics; take Deng Xiaoping Theory and the important thought of Three Represents as our guide; thoroughly apply the Scientific Outlook on Development; remain spirited and energetic; work diligently through our unremitting efforts; make new and greater contributions to promoting reform and opening up as well as economic and social development; and greet the Eighteenth CPC National Congress with outstanding achievements.
 
(本文根据中共中央政治局常委、国务院副总理李克强同志2011年12月15日在全国发展和改革工作座谈会上的讲话整理而成。 )
 
(Author: Member of the Standing Committee of the Political Bureau of the CPC Central Committee and Vice-Premier of the State Council 
This article is compiled from a speech delivered by the author at the Seminar on National Development and Reform Work held on December 15, 2011.)

  

转载请注明出处。