国家发改委关于国民经济和社会发展计划报告
关于20xx年国民经济和社会发展计划执行情况
与20xx年国民经济和社会发展计划草案的报告
--20xx年3月5日在第十一届全国人民代表大会第二次会议上
国家发展和改革委员会
REPORT ON THE IMPLEMENTATION OF THE 2008 PLAN FOR NATIONAL ECONOMIC AND SOCIAL DEVELOPMENT AND ON THE 2009 DRAFT PLAN FOR NATIONAL ECONOMIC AND SOCIAL DEVELOPMENT
Second Session of the Eleventh National People's Congress March 5, 2009
National Development and Reform Commission
各位代表：
Fellow Deputies,
受国务院委托，现将20xx年国民经济和社会发展计划执行情况与20xx年国民经济和社会发展计划草案提请十一届全国人大二次会议审议，并请全国政协各位
委员提出意见。
The National Development and Reform Commission has been entrusted by the State Council to report on the implementation of the 2008 plan for national economic and social development and on the 2009 draft plan for national economic and social development for your deliberation and approval at the Second Session of the Eleventh National People's Congress (NPC), and also for comments and suggestions from the members of the National Committee of the Chinese People's Political Consultative Conference (CPPCC).
一、20xx年国民经济和社会发展计划执行情况
I. Implementation of the 2008 Plan for National Economic and Social
Development
过去的一年，是很不寻常、很不平凡的一年，我国经济社会发展经历了多方面难以预料、历史罕见的重大挑战和严峻考验。全国各族人民在中国共 产 党的领导下，深入贯彻落实科学发展观，按照十一届全国人大一次会议审议批准的国民经济和社会发展计划，克服重重困难，排除各种突发事件的干扰，全面夺取抗击南方部分地区严重低温雨雪冰冻灾害和四川汶川特大地震灾害斗争重大胜利；成功举办北京奥运会、残奥会，成功完成神舟七号载人航天飞行任务；特别是积极应对国际金融危机冲击，保持了经济平稳较快发展和社会和谐稳定。计划执行情况
总体是好的。
The year 2008 was an extraordinary and eventful year for China. Our country's economic and social development experienced a variety of severe challenges and tests that were hardly anticipated and rarely seen. Under the leadership of
the Communist Party of China (CPC), the people of all our ethnic groups thoroughly applied the Scientific Outlook on Development, followed the plan for national economic and social development adopted at the First Session of
the Eleventh NPC, surmounted numerous difficulties, and eliminated
interference from emergencies of all kinds. Finally, we won great victories in
dealing with the devastating snow and ice storms in parts of the south and the massive earthquake that hit Wenchuan, Sichuan Province. We successfully held the Beijing Olympic and Paralympic Games and accomplished the Shenzhou VII manned space flight mission. In particular, we actively
responded to the severe impact of the global financial crisis, sustained steady and fairly rapid economic development and maintained social harmony and
stability. The Plan for 2008 was, on the whole, implemented well.
（一）经济平稳较快增长
1. The economy grew steadily and rapidly.
全年国内生产总值超过30万亿元，增长9．0％，比世界经济平均增长率高出5个多百分点。规模以上工业增加值比上年增长12．9％，轻、重工业分别增长12．3％和13．2％。全年社会消费品零售总额达到10．85万亿元，增长21．6％，增速比上年加快4．8个百分点；全社会固定资产投资总额17．23万亿元，
增长25．5％，国内需求特别是消费需求对经济增长的拉动作用增强。
China's GDP topped 30 trillion yuan in 2008, a year-on-year increase of 9.0% and more than five percentage points higher than the average world economic
growth rate. The value-added of large industrial enterprises increased by 12.9% over 2007, with that of light and heavy industries rising 12.3% and 13.2% respectively. Retail sales of consumer goods rose 21.6% to 10.85 trillion yuan, up 4.8 percentage points. Fixed asset investment across the country totaled 17.23 trillion yuan, up 25.5%. Domestic demand, particularly
consumer demand, played a greater role in boosting economic growth. 经济效益继续保持增长。国家财政收入6．13万亿元，增长19．5％。单位国内生产总值能耗进一步降低，全年降幅为4．59％；二氧化硫、化学需氧量排放量减少的势头得到巩固，全年分别下降5．95％和4．42％。万元工业增加值用水
量下降7．0％。节约集约用地工作力度加大，土地利用效率继续提高。 Economic performance continued to improve. National revenue reached 6.13 trillion yuan in 2008, up 19.5% year on year. Energy consumption per unit of GDP continued to decline in 2008, down 4.59%. Sulfur dioxide emissions and chemical oxygen demand kept falling, down 5.95% and 4.42% respectively, and this trend became more firmly set. Water consumption per 10,000 yuan of value-added by industry dropped by 7.0%. Efforts were intensified to use land more economically and intensively, resulting in continued improvement in
land-use efficiency.
（二）价格涨幅逐步回落
2. There was a gradual decline in the rate of price increase.
针对上半年国内食品价格上涨过快和国际市场粮食、油料价格急剧上涨对稳定物价带来的巨大压力，采取了综合性政策措施。一方面，努力保障供给。制定并组织实施扶持政策，促进粮食、生猪、油料、奶业、蛋鸡等生产发展；加强重要农副产品的紧急调运和产销衔接，缓解东北粮食、部分地区特别是灾区农产品卖难和流通不畅问题；采取财税支持、控制出口、鼓励进口、国家储备吞吐调节等综合措施，保障粮食、成品油、化肥等重要商品的市场供应和价格稳定。另一方面，
加强市场监管。对粮食、食用植物油等重要商品实施临时价格干预措施。组织开展农资价格、成品油价格、医药价格和涉农收费、涉企收费、教育收费等专项检查，积极引导经营者价格自律，严厉打击囤积居奇、哄抬价格、串通涨价等违法行为。与此同时，两次提高低保补助水平，确保低收入群体的基本生活不会因物价上涨受到明显影响。进入四季度后，通货膨胀压力明显减弱，全年居民消费价格上涨5．9％；生产资料和农资价格涨幅也迅速回落，12月份生产资料出厂价格同比下降1．9％，农资价格涨幅比最高时的7月份回落12．4个百分点。 We adopted comprehensive policies and measures to counteract the great pressure that ballooning domestic food prices and the surge in the prices of grain and oilseed on the international market in the first half of 2008 placed on our efforts to stabilize prices. On the one hand, we worked to ensure adequate supplies. We formulated and implemented supporting policies to boost grain, oilseed and egg production and hog and dairy farming. We strengthened the emergency allocation and transport of important farm and sideline products, improved coordination between their production and sale, and alleviated problems concerning the sale and distribution of grain in northeast China and farm products in some areas, especially disaster-stricken areas. We took measures that combined fiscal and tax policy support, export controls, import inducements and manipulation of state reserves to ensure adequate market supplies and steady prices for important commodities such as grain, refined petroleum products and fertilizer. On the other hand, we strengthened market oversight. We instituted temporary measures to hold down the prices of grain, edible vegetable oil and other important commodities. We organized and carried out inspections focused on prices for agricultural supplies, refined petroleum products, medical care and drugs, and charges related to farmers,
enterprises and education; actively encouraged business managers to exercise self-discipline in setting prices; and severely cracked down on
violations of the law such as hoarding for speculation and colluding to drive up prices. At the same time, we raised the level of the cost of living allowances twice to ensure that the basic living standard of low-income groups would not be significantly affected by price increases. Beginning in the fourth quarter, the inflationary pressure subsided considerably. The consumer price index (CPI) rose by 5.9% for the year. The rate of price increase for means of production, including agricultural supplies, also fell rapidly, with producer prices for means of production in December down 1.9% year on year and the inflation rate for
agricultural supplies down 12.4 percentage points from its July high.
（三）“三农”工作进一步加强
3. Work related to agriculture, rural areas and farmers was further intensified. 强农惠农政策力度不断加大。耕地保护工作继续加强。研究制定了进一步扶持农业和粮食生产的10项措施，组织编制了《全国新增1000亿斤粮食生产能力规划（2009－20xx年）》。在粮食收购价格、涉农补贴和主要农产品收储方面，进一步加大工作力度。三次大幅度提高粮食最低收购价，提价幅度超过20％；中央财政用于粮食直补、农资综合补贴、良种补贴、农机具购置补贴的资金达
1030亿元，比上年增长1倍；实施主要农产品临时收储政策，共收购稻谷1178
万吨、玉米852万吨、棉花131万吨、油料67万吨。
We constantly invigorated our policies to strengthen agriculture and benefit farmers and continued to intensify our efforts to protect farmland. We worked out ten measures to further support agriculture and grain production and organized the compilation of the Plan for Increasing the National Grain Production Capacity by 50 Billion Kilograms (2009-2020). We worked harder on the grain purchase prices, agricultural subsidies, and the purchase and storage of major farm products. We significantly raised minimum grain
purchase prices three times, increasing them altogether by more than 20%. In addition, government allocations for direct subsidies to grain growers, general subsidies for agricultural supplies, subsidies for superior varieties of crops, and subsidies for the purchase of agricultural machinery and tools reached 103 billion yuan, up 100% from the previous year. We implemented the policy of temporary purchase and stockpiling of major agricultural products, and accordingly purchased 11.78 million tons of grain, 8.52 million tons of corn,
1.31 million tons of cotton and 670,000 tons of oilseed.
支农资金投入继续增加。全年中央财政用于“三农”资金达5955．5亿元，增长37．9％。粮食、油料、糖料、棉花生产基地和旱作农业示范基地建设步伐加快，动植物疫病防控体系、标准化规模养殖小区、种养业良种繁育基地、农产品质量安全检验检测体系、农产品批发市场、粮油仓储及现代物流设施建设进展顺利。
We continued to increase funding to support agriculture, rural areas and farmers. Central government allocations in this area rose 37.9% to 595.55 billion yuan in 2008. We moved faster to build production bases for grain,
oilseed, sugar crops and cotton, and demonstration bases for
drought-resistant agriculture. We made smooth progress in developing the system for preventing and controlling animal and plant epidemics, large-scale standardized livestock, poultry and aquatic farming operations, bases for cultivating superior varieties and breeds, the system for quality and safety inspection and testing of agricultural products, wholesale markets for farm products, grain and edible oil storage facilities, and modern logistics facilities. 主要农副产品产量大幅增长。粮食连续5年丰收，全年总产量达到52850万吨，增长5．4％，总产和单产均创历史新高。棉花产量750万吨，油料、糖料产量分别达到2950万吨和13000万吨，增长14．8％和6．7％；生猪生产恢复较快，肉类总产量7269万吨，增长5．9％，奶业生产逐步恢复，全年牛奶产量增长3．6％；水产品产量4895万吨，增长3．1％。优质高产高效农业取得新进展，无公害农产品、绿色食品、有机食品和农业标准化生产加快发展，优质小麦和优质水稻所占比重分别达到68％和74％，比上年提高6．3个和1．9个百分
点。
The output of major farm and sideline products increased significantly. We had good harvests for five consecutive years, with last year's total output rising
5.4% to 528.5 million tons, a record high for both total output and yield per unit area. Cotton output reached 7.5 million tons in 2008; oilseed production was
29.5 million tons, up 14.8%, and sugar crop yield stood at 130 million tons, up
6.7%. Hog production recovered rapidly last year, and the total output of meat increased 5.9% to 72.69 million tons. Dairy farming also recovered gradually with total milk output up 3.6%. The output of aquatic products came to 48.95 million tons, up 3.1%. Further progress was made in developing high-quality,
high-yield, and cost-efficient agriculture. Production of pollution-free
agricultural products and green and organic foodstuffs and standardization of agricultural production were accelerated. High-quality wheat was planted in 68% of China's total wheat acreage, and high-quality rice accounted for 74% of the total rice acreage, up 6.3 and 1.9 percentage points respectively from the
previous year.
农村生产生活条件进一步改善。病险水库除险加固、大型灌区续建配套与节水改造工程加快实施，中部大型排涝泵站更新改造规划提前完成，开工建设了一批骨干水利工程。继续加强农村水电气路建设，饮水安全工程使4824万农民受益，新增沼气用户500万户，新建、改建农村公路39．1万公里。“万村千乡”、“双
百”市场工程进展顺利。
Working and living conditions continued to improve in rural areas.
Implementation of the projects to reinforce dangerous reservoirs, and build auxiliary facilities and upgrade water-saving devices in large irrigated areas was sped up; work on the plan to upgrade large drainage pumping stations in the central region was completed ahead of schedule, and construction on a number of key water conservancy projects was begun. Development of water and power supplies, methane facilities and roads was further strengthened in rural areas. As a result, 48.24 million farmers benefited from the safe drinking
water project; methane gas was made available to five million more
households; an additional 391,000 kilometers of rural roads were built or upgraded last year. The project to encourage retailers to open stores in more townships and villages and the project to support 100 large wholesale markets
for farm products and 100 large rural retail distributors both progressed
smoothly.
（四）结构调整取得重要进展
4. Important progress was made in structural adjustment.
自主创新能力继续增强。新修订的科技进步法公布实施，国家中长期科学和技术发展规划纲要实施顺利，配套政策进一步完善。科技创新投入大幅增加，中央财政科技投入1163亿元，增长16．4％。大型油气田、极大规模集成电路等16个国家重大科技专项全面进入实施阶段，国家科技支撑、863、973等科技计划进展顺利，知识创新三期工程建设全面启动，大天区望远镜、重离子加速器等国家重大科技基础设施建成投入使用，在信息、生物和环保等领域新建了18个国家工程中心，新认定了76家国家级企业技术中心，支持了90家企业技术中心创新能力建设。自主研发了百万亿次超级计算机，新支线飞机ARJ21－700首
飞成功。
Our capacity for independent innovation continued to increase. The newly revised Law on Scientific and Technological Advances was promulgated and
implemented in 2008. The Outline of the National Program for Long- and Medium-Term Scientific and Technological Development was implemented smoothly and its supporting policies were further improved. Funding for scientific and technological innovation was increased significantly.
Expenditures on science and technology from the central budget in 2008 totaled 116.3 billion yuan, up 16.4%. The 16 major state science and
technology projects, including development of large-scale oil and gas fields and ultra-large scale integrated circuits, all entered the implementation phase. Smooth progress was made in implementing the National Key Technology R&D Program, the March 1986 High-Tech Program, the March 1997 Program for Basic Research, and other science and technology programs. The third phase of the Knowledge Innovation Program was fully launched. Development of major state science and technology infrastructure such as the large sky area multi-object fiber spectroscopic telescope and the heavy ion research facility was completed, and they became operational. An additional 18 national engineering research centers were built in areas such as information
technology, biotechnology and environmental protection; 76 more enterprise technology centers received state recognition; 90 enterprise technology centers received government support to enhance their innovation capacity. A 100 teraflops supercomputer was developed independently, and the new
ARJ21-700 regional jet made a successful maiden flight.
高技术产业和装备制造业发展加快。生物医药、卫星应用等13个高技术产业化专项实施顺利，在信息、生物、新能源、新材料、民用航空航天等领域新认定了37个高技术产业基地，发放了3张第三代移动通信牌照。20xx年，54个国家高新区工业增加值增长18．6％。振兴装备制造业的政策体系不断完善，一批重大装备和关键设备研制成功。空客A320天津总装线正式投入运营，1000千伏交流特高压输电试验示范线路的关键设备研制成功，兆瓦级风电设备开始批量生产。同时，继续依法淘汰落后生产能力，全年关停小火电1669万千瓦、小煤矿1054处，水泥、钢铁、电解铝等行业落后产能淘汰工作进展顺利。高耗能、高排放行业生产增幅明显放缓，钢铁、煤炭、建材等行业优势企业兼并重组步伐加
快。
Development of high-tech industries and equipment manufacturing was accelerated. Thirteen projects to apply biomedicine, satellite and other high technologies in production were implemented smoothly; 37 more high-tech industrial bases were certified in areas such as information technology, biotechnology, new energy sources, new materials, civil aviation and civil
aerospace; three licenses were issued for third generation mobile
communications. The value-added of the 54 national new and high technology development zones rose 18.6% in 2008. The policy framework to reinvigorate the equipment manufacturing industry was constantly improved, and R&D on a number of major equipment and key facilities was carried out successfully. The final assembly line for Airbus A320 was put into operation in Tianjin; R&D on the key equipment of the experimental demonstration line for transmitting 1,000-kilovolt AC ultrahigh-tension power was carried out successfully; mass
production of megawatt wind power facilities was started. In addition, we continued to shut down backward production facilities in accordance with the law. Small thermal power plants with a total power generating capacity of 16.69 million kilowatts and 1,054 small coalmines were shut down last year, and shutdowns also progressed smoothly in the cement, steel and electrolytic aluminum industries. The growth of production in energy intensive and highly
polluting industries slowed down significantly, and mergers and
reorganizations of competitive enterprises in the steel, coal and
building-material industries were accelerated.
基础设施和基础产业稳定发展。新增公路通车里程近10万公里，其中高速公路6433公里；新建铁路投产里程1719公里，增建铁路复线投产里程1935公里，电气化铁路投产里程1955公里，武汉－合肥铁路全面建成，京沪高速铁路、北京－石家庄－武汉客运专线和兰渝、贵广等西部干线及其他一批重大铁路项目开工建设；港口万吨级码头泊位新增吞吐能力3．3亿吨；港珠澳大桥前期工作取得实质性进展；新建康定、榆林、长白山等8个民用机场。福建宁德、福清与广东阳江、浙江方家山4个核电项目开工建设，两淮煤炭基地竣工验收，国家石油储备一期工程交付使用。全年原煤产量27．9亿吨，增长4．1％，新增发电装
机9051万千瓦。
Infrastructure and basic industries developed steadily. A total of nearly
100,000 kilometers of highways, including 6,433 kilometers of expressways, were opened to traffic in 2008. A total of 1,719 kilometers of newly built railway
lines, 1,935 kilometers of double-track rail lines, and 1,955 kilometers of electric rail lines were put into operation. The Wuhan-Hefei Railway was completed, and construction was begun on the Beijing-Shanghai high-speed railway, Beijing-Shijiazhuang-Wuhan passenger line, trunk rail lines in the western region such as Lanzhou-Chongqing Railway and Guiyang-Guangzhou Railway, and a number of other major railway projects. Annual cargo handling capacity of berths for 10,000 ton-class or larger ships increased by 330 million
tons; substantial progress was made in preparatory work on the Hong
Kong-Zhuhai-Macao Bridge; eight more civilian airports were built last year, including ones in Kangding, Yulin and Changbaishan. Construction was begun
on four nuclear power stations in Ningde and Fuqing, Fujian Province;
Yangjiang, Guangdong Province; and Fangjiashan, Zhejiang Province. Work on a large coalmining base in Huainan and Huaibei coalmines was completed and passed acceptance inspection. The first phase of the state petroleum reserves project became operational. Coal output was 2.79 billion tons in 2008, up 4.1%, and installed power-generating capacity increased by 90.51 million
kilowatts.
服务业发展态势良好。支持服务业加快发展的政策体系不断完善，新农村综合信息服务、基础教育信息资源开发与服务、中小企业电子商务服务等信息化试点示范工程启动实施。运用服务业发展引导资金，重点支持了先进制造业服务体系、农业生产配套服务体系建设。第三产业增加值达到12．05万亿元，比上年增长
9．5％，20xx年以来增幅首次超过第二产业。
There was good development momentum in the service sector. Our policy system for supporting faster development of the service sector was constantly improved. IT-based demonstration pilot projects were implemented to provide comprehensive information services for building a new countryside, develop
and provide computerized basic education resources, and provide
e-commerce services for small and medium-sized enterprises. We set aside guidance funds to support development of the service sector, with the focus on developing a system of services for advanced manufacturing and a system of services for agricultural production. The value-added of tertiary industry rose
9.5% to 12.05 trillion yuan in 2008, the first time since 2003 that it grew faster
than secondary industry.
区域发展协调性增强。新开工了10项西部大开发重点工程，投资总规模达4361亿元，落实退耕还林后续政策，巩固退耕还林成果，实施退牧还草523万公顷。东北地区等老工业基地振兴步伐加快，确定了全国首批12个资源枯竭城市，东北中小企业信用再担保机构正式成立。中部地区26个城市比照实施振兴东北地区等老工业基地有关政策、243个县（市、区）比照实施西部大开发有关政策逐步落实，中部城市群发展势头强劲，“三个基地、一个枢纽”建设取得积极进展。东部地区在转变发展方式、调整经济结构、推动体制创新等方面继续走在全国前列，出台了推进长江三角洲地区改革开放和经济社会发展指导意见以及珠江三角洲地区改革发展规划纲要，经济特区、上海浦东新区、天津滨海新区开发开放继续向纵深发展。制定和实施了一批扶持老少边穷地区发展的政策性文件，区域合
作和对口支援不断拓展，东部产业向中西部地区转移呈良好态势。
Development became more balanced among regions. Construction was begun on ten more key projects for the large-scale development of the western region, with a total investment reaching 436.1 billion yuan. The follow-up policy to consolidate progress made in reforesting farmland was implemented, and an additional 5.23 million hectares of grazing land was returned to grassland.
Rejuvenation of northeast China and other old industrial bases was
accelerated. The first group of 12 cities dependent on now-depleted resources was designated, and a credit re-guarantee company was established for small and medium-sized enterprises in northeast China. We gradually implemented the policy for the central region, which calls for following the rejuvenation policy for northeast China and other old industrial bases in 26 cities of the region and the development policy for the western region in 243 counties or county-level cities and districts. Powerful momentum was maintained in developing clusters
of cities in the central region, and encouraging progress was made in
developing three different kinds of production bases and a system of
integrated transportation hubs for the region. The eastern region continued to lead the country in changing the pattern of development, adjusting economic structure, and promoting institutional innovation. Guidelines on promoting reform, opening up and economic and social development in the Yangtze Delta area and the outline of the program for reform and development of the Pearl River Delta area were promulgated, and development and opening up in the special economic zones, the Shanghai Pudong New Area and the Tianjin
Binhai New Area continued to deepen. A number of policies were formulated and implemented to support the development of old revolutionary areas, ethnic minority areas, border areas and poor areas. Cooperation between regions and cross-region one-to-one assistance continued to expand, and relocation of
industries from the eastern region to the central and western regions
progressed at a good pace.
（五）改革开放迈出新的步伐
5. Further progress was made in reform and opening up.
经济体制改革继续深化。农村综合改革继续深化，集体林权制度改革全面推开。公司制股份制改革和国有独资公司董事会试点稳步推进，17家试点中央企业董事会中的外部董事都已超过半数。国有资本经营预算制度改革试点范围扩大，电信企业资产和业务重组基本完成，初步形成了新移动、新电信和新联通三足鼎立的竞争格局；航空工业体制改革取得重大进展，中航一、二集团合并重组为中国航空工业集团公司。鼓励支持和引导非公有制经济发展的配套措施不断完善。新的企业所得税法得到较好落实，研究制定并发布实施了增值税转型改革方案。中国农业银行和国家开发银行改革取得重大进展，银行业的资本实力、资产质量和防风险能力有了新的提高。资源性产品价格改革稳步推进，酝酿多年的成品油价格和税费改革方案顺利实施。修改完成了深化医药卫生体制改革的意见，研究制定了2009－20xx年改革实施方案。综合配套改革试点工作也取得了新的进展。
Economic restructuring continued to deepen. Overall rural reform was
deepened and reform of the system of collective forest rights was carried out
throughout the country. The reform to institute a corporate system or a stockholding system in state-owned enterprises and the pilot project to implement a board of directors system in wholly state-funded corporations progressed steadily, and outside directors now account for more than half of the board members in all 17 of the central government enterprises participating in the project. The trial reform of the budget system for state capital operations
was extended to more areas. The restructuring of assets and business operations of telecommunication companies was basically completed,
ushering in a competitive market dominated by three restructured telecom giants, China Mobile, China Telecom and China Unicom. Significant progress
was made in restructuring the aviation industry, with the China Aviation Industry Corporations I and II being amalgamated into the Aviation Industry Corporation of China. Coordinated measures to encourage, support and guide the development of the non-public sector of the economy were continually improved. The new Law on Corporate Income Tax was implemented well. A plan for VAT reform was formulated and implemented. Important progress was
made in there forms of the Agricultural Bank of China and the China
Development Bank. The capital strength, asset quality and risk resistance of the banking industry improved. The reform of the prices of resource products progressed steadily. The plans to reform the prices of refined petroleum products and related taxes and fees, which took years to formulate, were implemented smoothly. Guidelines on deepening the reform of the medical
and health care system were finalized, and a plan was formulated to
implement the reform from 2009 through 2011. Further progress was also made in the pilot reforms to promote comprehensive and sustainable
development.
开放型经济继续发展。对外贸易较快增长。全年进出口总额25616亿美元，比上年增长17．8％。进出口商品结构继续改善，机电产品、高新技术产品出口分别增长17．3％和13．1％。服务贸易快速发展。利用外资质量和水平进一步提升。完善了外商投资、借用国外贷款管理。全年吸收外商直接投资（不含银行、证券、保险领域）924亿美元，比上年增长23．6％，其中，服务贸易领域实际使用外资增长24．2％，西部和中部地区实际使用外资分别增长79．8％和36．4％。安排借用国外贷款230亿美元，比上年增长5．4％。国家外汇储备达到1．95万亿美元。企业对外投资合作步伐加快，全年对外直接投资（非金融部分）406．5亿美元，比上年增长63．6％，对外工程承包和劳务合作保持较快发展。
The open economy continued to grow. Foreign trade grew rapidly. Total imports and exports for the year reached US$ 2.5616 trillion, up 17.8% over 2007. The trade mix was further improved as evidenced by 17.3% growth in the export of mechanical and electrical products and 13.1% growth for new-
and high-tech products. Trade in services expanded rapidly. Foreign
investment was used more effectively. Management of foreign investment and loans was improved. Foreign direct investment in 2008 (excluding that in the banking, securities and insurance sectors) amounted to$92.4 billion, 23.6% higher than the previous year. Of this total, paid-in investment in the trade in services grew by 24.2%, and paid-in investment in the western and central regions increased by79.8% and 36.4% respectively. A total of $23 billion of foreign loans were disbursed, a rise of 5.4% year on year. The state's foreign exchange reserves reached $1.95 trillion. Enterprises picked up the pace in making investment and undertaking cooperative projects overseas. Total overseas direct investment of Chinese enterprises (non-financial portion) for
the year reached $40.65 billion, a rise of 63.6% over the previous year. Contracts for overseas projects and cooperation in the area of labor services
maintained a rapid pace of development.
（六）民生工作和社会事业得到加强
6. Efforts were intensified to improve people's lives and strengthen social
programs.
城乡居民收入继续增加、实惠增多。全年农村居民人均纯收入和城镇居民人均可支配收入分别达到4761元和15781元，实际增长8．0％和8．4％。促进就业、以创业带动就业的政策进一步完善，城镇新增就业1113万人，年末城镇登记失业率4．2％。社会保障覆盖面继续扩大，全国参加城镇基本养老、城镇基本医疗、失业、工伤、生育保险人数分别新增1753万、9387万、755万、1637万和1406万。企业退休人员基本养老金人均每月新增110元，城镇居民基本医疗保险试点城市新增229个，新型农村合作医疗制度实现全覆盖（以县为单位）。被征地农民社会保障制度建设取得新进展。新建城镇廉租住房63万套，通过实物配租和发放租赁补贴，又解决了190万户城市低收入家庭的住房困难。社区
服务体系、儿童福利设施、流浪未成年人救助保护设施以及残疾人综合服务设施建设积极推进。扶贫开发力度加大、扶贫标准进一步提高，利用国家以工代赈资金建设了基本农田7．2万公顷，解决了贫困地区190万人、110万头牲畜饮水
困难。安排西部地区易地扶贫搬迁人口32万人。
The incomes of urban and rural residents continued to rise and they enjoyed greater benefits. Rural per capita net income reached 4,761 yuan and urban per capita disposable income came to 15,781 yuan, rising by 8% and 8.4% in real terms respectively. Policies to promote employment and to stimulate job creation by encouraging entrepreneurship were improved; 11.13 million new jobs were created for urban residents, and the registered urban unemployment rate stood at 4.2% at the end of the year. The social safety net continued to expand. There were 17.53 million people newly covered by urban basic
old-age insurance, 93.87 million by urban basic medical insurance, 7.55 million by unemployment insurance, 16.37 million by workers' compensation and 14.06 million by maternity insurance. The level of basic old-age pensions for enterprise retirees was raised by 110 yuan per person per month. Trials of providing basic medical insurance for non-working urban residents were extended to 229 more cities. The new type of rural cooperative medical care system was set up in all targeted counties or county-level cities and districts. Further progress was made in developing the social security system for farmers whose land was expropriated. A total of 630,000 dwelling units of low-rent housing were built in urban areas, and the housing problem for a total of 1.9 million low-income urban families was resolved by providing them with low-income housing or granting them rent subsidies. Energetic progress was made in developing community-based services, children's welfare facilities,
facilities for assisting and protecting homeless juveniles, and facilities
providing comprehensive services for people with disabilities. Poverty
alleviation through development was intensified, and the poverty line was raised again. Work-relief funds were used for developing 72,000 hectares of basic farmland. The potable-water problem was solved for 1.9 million people and 1.1 million heads of livestock in poverty-stricken areas. In the western region, 320,000 people were relocated from inhospitable places as a poverty
relief effort.
各项社会事业建设得到加强。城乡免费义务教育全面实施，职业教育加快发展，家庭经济困难学生资助制度逐步完善。农村义务教育办学条件进一步改善，在3519所农村初中学校新建689万平方米学生生活设施，支持722所中等职业学校和县级职教中心加强基础能力建设；新建改扩建182所特殊教育学校。启动实施高等教育“211工程”三期建设。高中阶段教育毛入学率比上年提高8个百分点，普通高校招生数增加42万人，研究生增加2．7万人。基层医疗服务和计划生育设施建设加快，支持了2万余所乡镇卫生院、430个县医院、209个县中医院和369个县妇幼保健机构的建设；安排专门资金，支持159个地市级以上重点中医院、1231个县级和乡镇中心计划生育服务站建设，对重大传染病、地方病多发的边远地区8800多个村卫生室给予了支持。人口自然增长率5．08‰。广播电视村村通、乡镇综合文化站、文化和自然遗产地保护、旅游等方面的支持
力度明显加大。新闻出版、文学艺术、哲学社会科学等事业繁荣发展。城乡公共
体育设施建设得到加强。
Social programs were strengthened. Free compulsory education was made universal in all urban and rural areas of the country. Vocational education developed at a faster pace. The system of financial aid for students from poor families was gradually improved. Conditions were improved in rural primary and junior secondary schools. A total of 6.89 million square meters of living facilities were built for 3,519 rural junior secondary schools. Support was provided for strengthening the infrastructure of 722 secondary vocational schools and county-level vocational education centers. There were 182 special education schools newly built, renovated or expanded. The third phase of the 211 Higher Education Project was begun. The secondary gross enrollment ratio was eight percentage points higher than the previous year. Regular undergraduate enrollment increased by 420,000, and graduate enrollment by 27,000. Development of community-level medical care services and family planning facilities was accelerated. Support was provided for building more than 20,000 clinics in towns and townships, 430 county hospitals, 209 Chinese medicine hospitals, and 369 maternity and child health centers. Special funds were used for developing 159 key Chinese medicine hospitals at or above the
prefecture level, 1,231 county-level family planning service facilities and central family planning service stations for towns and townships, and more than 8,800 village clinics in remote areas plagued by serious infectious or endemic diseases. The natural population growth rate stood at 5.08. Support was significantly strengthened for programs such as extending radio and TV coverage to all villages, building multipurpose cultural centers in towns and townships, protecting cultural and natural heritage sites, and developing tourism. The press and publishing, literature and art, philosophy and the social
sciences all prospered. The development of urban and rural public sports
facilities was intensified.
（七）资源节约型和环境友好型社会建设加快
7. Development of a resource-conserving and environmentally friendly society
was accelerated.
节能减排工作力度加大。全年累计安排423亿元中央财政资金，支持十大重点节能工程建设、循环经济发展、城镇污水垃圾处理设施及配套管网改造、重点流域水污染治理和节能环保能力建设等。推广节能灯6000多万支，限产限售限用塑料购物袋取得明显成效。发布了国家重点节能技术推广目录，建筑、交通运输、公共机构节能取得新进展。实施节能减排科技专项行动，攻克了一批重点行业的重大节能减排技术，在重点领域和行业进行了大规模示范和推广应用。第二批国家循环经济示范试点顺利实施，启动了14家汽车零部件再制造试点。经济政策的激励作用进一步强化，发布实施了节能节水环保设备所得税优惠政策，调整了不同排量乘用车的消费税税率，完善了资源综合利用税收优惠政策，出台了可再生能源电价补贴和配额交易方案。开展了省级政府20xx年节能减排目标完成情况、节能减排措施落实情况的评价考核，公布了20xx年度千家重点耗能企业节
能目标责任评价考核结果，重点耗能企业能效水平对标活动进展顺利。组织开展了节能减排专项督察和环保专项执法行动。节能减排全民行动等宣传活动收到了
良好社会效果。
Energy conservation and pollution reduction efforts were intensified. For the whole year, 42.3 billion yuan from the central treasury was spent to support construction on ten major energy conservation projects, development of the circular economy, upgrading of urban sewage and garbage treatment facilities
and sewer lines, treatment of water pollution in key water basins, and
strengthening of our energy conservation and environmental protection capacity. More than 60 million energy-efficient lights were distributed. The campaign to limit the production, sale and use of plastic bags achieved significant success. The national catalog of major energy-conserving
technologies for extensive application was published. The construction and transportation sectors and public agencies made further progress in saving
energy. We launched a science and technology initiative for energy
conservation and emissions reduction, made breakthroughs in a number of major energy-conserving, pollution-reducing technologies in key industries, and widely demonstrated and applied these technologies in key areas and industries. The second round of demonstration trials for the circular economy was conducted smoothly, and trials for remanufacturing auto parts were begun
in 14 auto enterprises. Economic policy played a bigger role in providing incentives. A preferential income tax policy for energy-and water-conserving and pollution-reducing equipment was promulgated. Excise tax rates for passenger vehicles of varied engine displacements were adjusted. The preferential tax policy concerning the comprehensive utilization of resources was improved. We developed a scheme for using surcharge and quotas to
subsidize the price of electricity generated from renewable sources.
Assessments were conducted on provincial governments' performance in meeting the targets and implementing the measures for energy conservation and pollution reduction in 2007. The results of evaluations of how well the 1,000 energy-intensive enterprises met energy conservation targets set for 2007 were made public. The campaign urging major energy-consuming enterprises to set, review and live up to the energy efficiency benchmarks progressed smoothly. A campaign was organized to supervise energy
conservation and emissions reduction efforts and enforce environmental protection laws. Publicity activities to get the people to save energy and reduce
pollution produced positive social effects.
生态环境保护取得新进展。塔里木河治理、黑河治理、首都水资源保护工程积极推进，石羊河流域重点治理工程全面启动；在继续推进天然林资源保护、防护林体系建设、京津风沙源治理等重点生态保护工程的同时，启动了岩溶地区石漠化综合治理。太湖水环境综合治理和松花江、淮河、辽河等重点流域水污染防治工作积极推进。三峡库区三期地质灾害防治工程顺利实施。农村环保全面启动。全国新增城市污水日处理能力1149万吨，城市污水处理率和城市生活垃圾无害化处理率分别达到65％和64％，均比上年提高2个百分点左右。燃煤电厂脱硫改
造进一步推进，又有近1亿千瓦火电机组安装了脱硫设施，已占火电装机总量的
60％左右。
Progress was made in ecological and environmental conservation. The
projects to improve the ecosystems of the Tarim and Hei rivers and the Beijing water resources protection project were carried forward. The key project to restore the ecosystem of the Shiyang River was launched. While continuing to press ahead with major ecological projects, including virgin forest protection, development of shelterbelts and treatment of the sources of dust storms affecting Beijing and Tianjin, we launched a comprehensive project to prevent karst regions from turning into stony deserts. Work was energetically carried forward to improve the water environment of Taihu Lake and prevent and control water pollution in the Liao, Huai and Songhua rivers and other key water basins. The third phase of the project to prevent and control geological disasters in the Three Gorges Reservoir area was carried out smoothly. Environmental protection work was initiated on a broad scale in rural areas. Last year, the daily urban sewage treatment capacity was increased by 11.49 million tons, 65% of urban sewage was treated and 64% of urban household waste was safely handled, an increase of about two percentage points year on
year in both cases. Further progress was made in the desulfurization of coal-fired power plants. Desulfurizing devices were installed in more thermal power plants with nearly 100 million kilowatt capacity, raising the percentage of the total capacity of the coal-fired plants equipped with such devices to around
60%.
应对气候变化国家方案得到较好落实。发布《中国应对气候变化的政策与行动》白皮书，推动通过《应对气候变化技术开发与转让北京宣言》，清洁发展机制项
目合作积极开展。
China's National Climate Change Program was implemented well. The white paper China's Policies and Actions for Addressing Climate Change was
published. The Beijing High-Level Statement on Technology Development and
Technology Transfer for Climate Change was adopted. Cooperation on
projects concerning clean development mechanisms was energetically carried
out.
（八）抗击特大自然灾害取得重大胜利
8. Great success was achieved in fighting devastating natural disasters. 年初，为应对南方部分地区严重低温雨雪冰冻灾害，按照中央的统一部署，各地区各部门迅速启动应急机制，全力保交通、保供电、保民生，迅速恢复了工农业生产和因灾损毁的基础设施。“5·12”四川汶川特大地震发生后，全国上下紧急动员，人民解放军、武警部队、民兵预备役人员、公安民警和医疗卫生人员、新闻工作者、科技工作者、教育工作者、志愿者等各方面力量迅速行动，港澳台同胞及海外华人华侨慷慨解囊，国际社会积极施援，奋勇夺取抗震救灾斗争重大胜利，谱写了感天动地的英雄凯歌。从废墟中抢救出生还者8．4万人，及时收治伤病人员296万人次，累计救助受灾困难群众1058．4万人。为积极有效开展恢复重建工作，出台了汶川地震灾后恢复重建条例，经全国人大常委会批准，设
立了灾后恢复重建基金，在较短时间内编制完成灾后恢复重建总体规划和10个专项规划，建立了“一省帮一重灾县”的对口支援机制。目前，灾后恢复重建各项规划正在抓紧实施，8400多个重建项目已开工建设，灾区群众生产生活正逐步
恢复正常。
When parts of south China were hit with severe snow and ice storms at the beginning of the year, all localities and sectors, in accordance with the unified arrangements made by the central authorities, immediately set emergency response mechanisms in motion, did everything in their power to ensure transport, power supply and people's livelihood, and restored agricultural and industrial production as well as disaster-destroyed infrastructure in a short period of time. In the wake of the massive earthquake that hit Wenchuan, Sichuan Province on May 12, the whole nation was quickly mobilized. Forces of all kinds, including members of the People's Liberation Army, the Armed Police Forces, the militia, reserve forces, and public security personnel, as well as health workers, journalists, scientists and volunteers, responded promptly. Compatriots in Hong Kong, Macao and Taiwan and overseas Chinese made generous donations. The international community offered us a helping hand. Together, we achieved a great victory in the fight against the earthquake and wrote a moving, heroic paean memorializing our brave efforts. We pulled 84,000 survivors from the rubble, provided medical treatment to 2.96 million people who were injured or fell ill, and delivered aid to a total of 10.584 million people affected by the earthquake. In order to rebuild the disaster areas more effectively, the Regulations on Post-Wenchuan Earthquake Recovery and Reconstruction were formulated. With the approval of the NPC Standing Committee, a recovery and reconstruction fund was set up. The overall plan for recovery and reconstruction and ten specific plans were drawn up in a short period of time. Provinces (or province-level municipalities) were paired up with severely hit counties (or county-level cities), with each province providing assistance to its twin county. All recovery and reconstruction plans are being implemented quickly, and over 8,400 projects have been started already. Lives
and production are returning to normal in the disaster-hit regions.
在世界经济金融形势发生急剧变化、国内各种突发性困难明显增多的情况下，20xx年经济社会发展取得显著成绩，来之不易。这是党中央、国务院坚强领导、科学决策的结果，是各地区各部门密切配合、扎实工作的结果，是全国各族人民
众志成城、共克时艰的结果。
Despite drastic changes in the global economic and financial situation and a marked increase in unexpected difficulties at home, notable achievements were made in economic and social development in 2008, and none of them came easily. They would not have been possible without the strong leadership and scientific decision-making of the Party Central Committee and the State Council, close collaboration and hard work of all localities and sectors, or the
resolve, unity and painstaking efforts of the people of all ethnic groups.
在充分肯定成绩的同时，我们也清醒地看到，当前国际国内经济形势十分严峻复杂，保持经济平稳较快发展任务更加繁重。国际金融危机扩散蔓延，已严重冲击全球经济，波及范围之广、影响程度之深、冲击强度之大超出人们预料，主要发达经济体可能全面衰退，新兴市场经济体和发展中国家增速放缓，世界经济将会经历一个较长的低迷和调整时期，同时，全球通货紧缩压力加大，贸易保护主义抬头，不确定不稳定性因素显著增多。受国际金融危机冲击的影响，加上我国自主创新能力不强、产业结构不合理、内需外需不均衡、资源环境代价过大，以及投资消费比例关系、经济社会发展和城乡区域发展不协调等发展方式粗放的问题与体制性、结构性矛盾依然存在，经济运行困难急剧增加。特别是20xx年第四季度以来，经济增速下滑已经成为经济运行中的突出问题。一是工业生产显著放缓，10－12月，全国规模以上工业增加值增幅同比分别回落9．7个、11．9个和11．7个百分点；能源、原材料和运输需求缩减，钢材、电解铝等产品市场价格下降，产能过剩问题明显暴露。二是一些消费热点降温，全年全国商品房销售面积下降19．7％，汽车销量增幅回落15．1个百分点，近年来消费增长较快的其他商品需求也出现了不同程度的下降。三是对外贸易急剧下滑，去年11、12月份出口额分别下降2．2％和2．8％。四是部分企业经营困难，企业订单减少、销售不畅、利润缩减状况从沿海向内地、从中小企业向大企业、从外向型行
业向其他行业蔓延，亏损企业增加较多。
While fully recognizing these achievements, we are keenly aware that the global and domestic economic situations are grim and complex, and that the task of maintaining steady and fairly rapid economic growth has become more formidable. The spread of the international financial crisis has exerted an enormous impact on the global economy, and the breadth, depth and intensity of the impact have exceeded everyone's expectations: the economies of major developed countries might all fall into recession, emerging market economies and developing countries are experiencing slowdowns in growth, and the world
economy will experience a long period of stagnation and adjustment. In addition, there has been mounting global deflationary pressure and resurging trade protectionism, which will add more uncertainties and instabilities. The impact of the global financial crisis and many outstanding problems at home have suddenly made it more difficult to keep our economy going strong. We
have not yet improved the extensive pattern of development or solved
institutional and structural problems, including poor independent innovation capacity, unsuitable industrial structure, imbalance between domestic and external demand, the high toll on natural resources and the environment, the disproportion between investment and consumption, and imbalances between
economic and social development, between rural and urban areas, and
between different regions. In particular, the slowdown in economic growth has become a significant economic problem since the fourth quarter of last year. First, industrial production declined significantly. The growth of value-added of large industrial enterprises dropped by 9.7, 11.9 and 11.7 percentage points year on year in October, November and December respectively. Demand for energy, raw materials and transport shrank; prices of products such as steel and electrolytic aluminum fell; the problem of excess production capacity
became apparent. Second, some consumption hotspots cooled down. The total floor area of commodity housing sold throughout the year decreased by 19.7%. The growth of automobile sales was 15.1 percentage points less than the previous year. Demand for other commodities, consumption of which had grown fast in recent years, also shrank by varying degrees. Third, foreign trade
dropped sharply, with exports down by 2.2% and 2.8% year on year in
November and December respectively. Fourth, some enterprises faced the difficult situation of fewer orders, sluggish sales and reduced profits. These problems spread from coastal regions to the hinterland, from small- and medium-sized enterprises to large ones, and from export-oriented industries to
other industries. Many more enterprises than before suffered losses.
与此同时，就业、“三农”、节能减排、金融等方面也存在一些突出矛盾和问题。就业再就业压力加大。全国企业用工需求明显下滑，10－12月城镇新增就业人数逐月下降，当月新增就业人数分别为84万、55万和38万，高校毕业生、城镇就业困难人员和农民工就业形势更趋严峻。促进农业增产、农民增收的制约因素较多。农业基础设施依然薄弱，连续5年丰收后继续保持粮食生产稳定发展更加困难，农产品价格下行压力较大，在农民工返乡较多、稳定就业难度加大的情况下，保持农民收入持续增长的制约进一步突出。推进节能减排的任务更加艰巨。由于发展阶段的客观因素，节能技术服务产业发展滞后，加上目前企业经营困难加大、开工不足，导致能源利用效率和治污设施正常运营水平下降、技术改造和污染治理投入减少，“十一五”后两年节能减排的压力仍然很大。金融市场潜在风险不容忽视，资本市场信心亟待增强。部分领域市场经济秩序混乱，生产安全和食品安全重特大事故频繁发生，给人民群众生命财产造成了重大损害。针对上述问题，我们将积极采取措施，加快解决突出矛盾，努力把各种不利影响降到
最低程度。
Meanwhile, there are also acute problems concerning employment, agriculture, rural areas and farmers, energy conservation and pollution reduction and the financial sector. There has been mounting pressure on employment and reemployment. Enterprises' demand for workers decreased significantly. The number of people joining the urban workforce in October, November and December dropped each month, standing at 840,000, 550,000 and 380,000 respectively. The employment situation for college graduates, urban residents having difficulty finding jobs and rural migrant workers has become worse. There are many factors restraining the growth of agricultural production and farmers' incomes. Agricultural infrastructure remains weak. After five years of bumper harvests in a row, it will be very difficult to keep grain production
growing steadily. There is great downward pressure on prices of farm products. The return home of many rural migrant workers and their difficulty in finding steady jobs makes it harder to keep rural residents' incomes growing. It is now
more difficult to promote energy conservation and pollution reduction.
Energy-conserving technologies and services are developing slowly due to the objective fact that they are still in the early stage of development. Moreover, because enterprises are facing more difficulties and some are not operating at
full capacity, they spend less on technological upgrading and pollution
reduction, which leads to a drop in their energy efficiency and ineffective operation of their pollution control equipment. Therefore, there will be great pressure to achieve energy conservation and pollution reduction targets in the last two years of the Eleventh Five-Year Plan period. Potential risks in financial
markets cannot be ignored, and confidence in the capital market urgently needs to be strengthened. There is chaos in the market order of some sectors, and workplace accidents and major food safety incidents repeatedly occur, inflicting heavy losses on people's lives and property. We will take vigorous
steps to solve the above problems and minimize their adverse impact.
二、20xx年经济社会发展的总体要求和主要目标
II. Overall Requirements and Major Objectives for Economic and Social
Development in 2009
20xx年的经济社会发展工作，要全面贯彻党的十七大和十七届三中全会精神，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，立足扩大内需保持经济平稳较快增长，加快发展方式转变和结构调整提高可持续发展能力，深化改革开放增强经济社会发展活力和动力，加强社会建设加快解决涉及群
众利益的难点热点问题，促进经济社会又好又快发展。
In pursuing economic and social development in 2009, we need to fully implement the guidelines adopted at the Party's Seventeenth National
Congress and the Third Plenary Session of its Seventeenth Central Committee, take Deng Xiaoping Theory and the important thought of Three Represents as our guide, and thoroughly apply the Scientific Outlook on Development. We will focus on boosting domestic demand to maintain steady and fairly rapid
economic growth. We will accelerate the structural adjustment and
transformation of the development pattern to improve our sustainable
development capability. We will deepen reform and opening up to enhance the vigor and vitality of economic and social development. We will strengthen social programs to solve sensitive and thorny problems concerning people's interests and promote sound and rapid economic and social development. 按照上述要求，围绕保持经济平稳较快发展的首要任务，考虑速度与质量结构效益相统一、内部经济与外部经济相均衡、经济发展与社会发展相协调的需要，并与“十一五”规划《纲要》相衔接，提出的20xx年经济社会发展的主要目标是： In view of the above requirements, focusing on the primary task of maintaining steady and fairly rapid economic growth; considering the need to integrate speed with quality, structure and efficiency, balance the domestic and
foreign-oriented sectors of the economy, and coordinate economic
development with social development; and in conformity with the Outline of the Eleventh Five-Year Plan for National Economic and Social Development, we have set the following major objectives for economic and social development
in 2009.
——经济保持平稳较快增长，国内生产总值增长8％左右。继续提出8％左右的经济增长目标，主要是为了防止增速下滑过多，是维护党和国家工作大局、广大
人民群众切身利益的客观需要，有利于稳定社会预期、增强发展信心，有利于扩大城乡就业、增加居民收入、保持社会稳定。同时，在世界经济增长减速、外部环境复杂多变、国内矛盾明显增多的形势下，这一目标也是不低的，需要强有力的宏观政策支撑和扎实有效的工作。当然，我们所追求的是讲求质量和效益的发
展，是以人为本、全面协调可持续的发展。
-- Maintaining steady and fairly rapid economic growth and keeping GDP growth at around 8%. Continuing to set the target of economic growth at 8% is primarily aimed at preventing the growth rate from dropping too much. The target was set to meet the objective requirements of the overall work of the Party and the state and the vital interests of the people, and it is beneficial for stabilizing public expectations, strengthening confidence in development, expanding urban and rural employment, increasing people's incomes and maintaining social stability. At the same time, given the slowdown in the growth of the world economy, the complex and volatile external environment, and the
considerable increase in domestic problems, this is not a low target and requires the support of strong macro policies, and practical and effective work. Of course, the development we pursue is high-quality, effective development
that is people-oriented, comprehensive, balanced and sustainable.
——经济结构进一步优化。自主创新力度加大，第三产业比重有所提高，产业集中度得到提升，落后产能进一步被淘汰，区域发展更趋协调，单位国内生产总值能耗、二氧化硫、化学需氧量排放量降幅进一步扩大。在国际金融危机不断蔓延、国内存在诸多矛盾和问题的大背景下，只有化挑战为机遇，变压力为动力，把保增长、扩内需、调结构有机结合起来，加快经济结构优化和企业转型升级，淘汰落后产能，整合生产要素，才能不断提高发展的质量和效益，增强产业竞争力和可持续发展能力。提出这个组合目标，就是为了引导各方面在保持经济平稳较快增长的同时，着力转变发展方式，加快调整经济结构，强化节能减排工作，努力
促进企业转型升级，增强应变能力，实现又好又快发展。
-- Further improving the economic structure. We will put more effort into
independent innovation, increase the share of tertiary industry in the economy, raise the level of industry concentration, shut down more backward production facilities, continue balancing development among different regions, and lower energy consumption per unit of GDP, sulfur dioxide emissions and chemical oxygen demand by a larger amount. Against the backdrop of the spreading global financial crisis and numerous domestic tensions and problems, we can continually improve the quality and efficiency of development and increase the competitiveness of industries and our sustainable development capability only if we turn challenges into opportunities; transform pressure into motive power; organically integrate maintaining economic growth, boosting domestic demand and adjusting economic structure; accelerate the optimization of the economic structure and the transformation and upgrading of enterprises; shut down backward production facilities; and integrate factors of production. This composite target is put forward to guide all sectors to focus on changing the pattern of development, speeding up economic restructuring, intensifying efforts to conserve energy and reduce pollution, promoting transformation and
upgrading of enterprises, improving emergency response capability, and achieving sound and rapid development, while maintaining steady and fairly
rapid economic growth.
——民生得到较好保障。城镇新增就业900万人，实际工作中力争更多一些，城镇登记失业率不高于4．6％。农民人均纯收入和城镇居民人均可支配收入均实际增长6％。减少农村贫困人口200万人以上。人口自然增长率控制在7‰以内。主要考虑是：越是困难的时候，越要高度关注民生，这无论是对于扩大内需、促进增长，还是增强全社会战胜困难的信心和决心，都是非常重要的。虽然当前部分企业经营困难，新增劳动力持续增加，特别是今年大学毕业生人数继续增加，就业形势非常严峻，但通过实施更加积极的就业政策，全方位增加就业岗位，加强就业服务和培训，城镇新增就业目标是可以实现的。受国内外经济环境变化的影响，农民务工难度加大，制约了现金收入的增加，生猪、棉花、大豆等主要农产品价格也存在一些不确定因素，今年城乡居民特别是农民增收形势不容乐观。但是，随着国民收入分配格局调整力度的加大，促进居民收入提高政策措施的逐步落实，农村劳动力就业渠道和农村内部增收空间的不断拓展，城乡居民收
入增长的预期目标也是可以实现的。
-- Ensuring people's well being. Nine million jobs should be created for urban residents, and we will make every effort to create even more to keep the rate of registered urban unemployment under 4.6%. Rural per capita net income and urban per capita disposable income should both rise by 6% in real terms. The number of rural people living below the poverty line should be reduced by more than two million. The natural population growth rate should stay within 7. In setting these targets, we have taken several major factors into account. The more difficulties we have, the greater concern we should show for people's well being. This is extremely important not only for boosting domestic demand
and stimulating growth but also for increasing the confidence and
determination of the public to overcome difficulties. The employment situation will be grim this year because some enterprises are experiencing difficulties in
their production and operation while our workforce keeps increasing; in particular, the number of college graduates this year will continue to increase. However, by following an even more vigorous employment policy to generate more jobs in all sectors of the economy and by strengthening employment services and job training, we should be able to reach the target for urban job creation. Due to the impact of changes in the domestic and international economic environments, it has become harder for rural residents to find
non-farm jobs, which has restricted the growth in rural cash income. Moreover, there are a number of uncertainties affecting the prices of major farm products such as hogs, cotton and soybean. As a result, we cannot be optimistic about the prospects of people's incomes, particularly those of rural residents, rising this year. However, by making greater efforts to adjust the pattern of national income distribution, pressing forward with policies and measures designed to boost personal incomes, and constantly expanding employment channels for
rural workers and the latitude for increasing rural incomes, it will still be possible for us reach the targets for increasing both urban and rural incomes.
——居民消费价格总水平涨幅控制在4％左右。提出这一目标，既估计了总需求增长放缓，供过于求矛盾加大，短期价格下行压力增大的因素，也考虑了稳步推进价格改革、劳动力和资源环境成本刚性上升等因素，同时也考虑了引导市场预
期和稳定市场信心的需要。
-- Keeping the CPI increase stable at about 4%. In setting this target, we have considered both factors that will hold down prices in the short run, including a slowdown in the growth in total demand and the growing problem of supply outstripping demand, and factors that will drive up prices, including the ongoing reform of prices and the inevitability that the cost of labor and
resources and environmental costs will rise. In addition, we have also taken
into consideration the need to guide market expectations and stabilize
confidence in the market.
——国际收支状况继续改善。出口保持稳定增长，进口进一步扩大，服务贸易发展加快，有效配置全球资源的能力和水平有所提高，国际竞争新优势得到加强。外贸进出口总额增长8％。利用外资的区域结构和产业结构改善，对外投资稳步增加。实现这一目标，既是保增长、保就业的现实需要，也是调结构、增效益的重要条件。尽管当前国际经济环境严峻，国际市场收缩，贸易保护主义抬头，但是，我国劳动力资源丰富、素质不断提高，技术进步加快，企业应对市场变化的能力逐步提升，在国际竞争中仍具有明显的比较优势，只要我们抓住国际分工调整的有利时机，坚持扩大对外开放，转变对外经济发展方式，走以质取胜、集约化、多元化的发展路子，就能够不断提高我国经济的国际竞争力和抗风险能力，
稳定并扩大国际市场份额。
-- Continuing to improve the balance of payments. Exports will continue to grow steadily; imports will further expand, and trade in services will develop more rapidly. We will become better able to effectively distribute resources globally and enhance our new advantages in international competition. Total imports and exports should grow by 8%. Structural improvements will be made in the allocation of foreign investment to regions and industries, and China's investment in other countries will grow steadily. Reaching this target is not only a practical necessity to ensure economic growth and employment, but also an
important condition for restructuring the economy and raising its level of performance. Although the current international economic environment is grim, the global market is shrinking and trade protectionism is resurgent, China still has significant advantages in international competition because the country is rich in human resources, the quality of its workforce is improving, it is making rapid advances in science and technology, and its enterprises are becoming
more responsive to market changes. As long as we seize favorable
opportunities presented to us in the course of adjusting the international division of labor, keep opening the country still wider to the outside world, change the way our external economy develops, and take the development path of competing on quality and efficiency and diversifying export markets, we
will be able to constantly increase the economy's capability to compete internationally and withstand risks, and maintain and expand its international
market share.
三、20xx年经济社会发展的主要任务和措施
III. Major Tasks and Measures for Economic and Social Development in
2009
今年是新中国成立60周年，也是应对国际金融危机冲击、保持国内经济平稳较快发展和社会和谐稳定、实现“十一五”规划目标的关键一年。要着力在保增长上下功夫，把扩大内需作为保增长的根本途径，把加快发展方式转变和结构调整作为保增长的主攻方向，把深化重点领域和关键环节改革、提高对外开放水平作为保增长的强大动力，把改善民生作为保增长的出发点和落脚点，积极应对挑战，
化解突出矛盾，促进经济社会又好又快发展。
This year is the 60th anniversary of the founding of New China. It is also a crucial year for dealing with the impact of the global financial crisis, sustaining the country's steady and fairly rapid economic growth, maintaining social harmony and stability, and achieving the goals set forth in the Eleventh Five-Year Plan. We will concentrate on ensuring economic growth. Our basic approach will be to increase domestic demand; our main orientation will be to change the pattern of economic development and adjust the structure of the economy more quickly; we will make deepening reforms in key areas and crucial links and raising the level of the country's open economy into a strong driving force; we will take improving people's lives as our starting point and final goal. We will confront challenges head-on, ease serious conflicts, and
promote sound and rapid economic and social development.
（一）实施积极的财政政策和适度宽松的货币政策，进一步加强和改善宏观调控。
1. We will adopt a proactive fiscal policy and an appropriately easy monetary
policy and further improve macro control.
把扭转经济增速下滑趋势作为宏观调控的最重要目标，进一步增强宏观调控的前
瞻性、应变能力和实际效果，全力支持经济增长。
We will take reversing the decline in economic growth as the most important goal of macro control. We will make our control more foresighted, responsive
and effective to fully encourage economic growth.
扩大财政支出与结构性减税相结合。
We will increase government spending while carrying out structural tax
reductions.
（1）增加中央财政赤字和国债发行规模。20xx年拟安排中央财政赤字预算7500
亿元，比上年预算增加5700亿元；相应增加国债发行规模。
1) The central budget deficit and the volume of treasury bonds issued will be increased. The proposed central budget deficit for 2009 is 750 billion yuan, a year-on-year increase of 570 billion yuan, and more treasury bonds will be
issued to finance this increase.
（2）减轻企业和居民税费负担。落实已出台的中小企业、房地产交易相关税收
优惠和出口退税等方面政策，统一取消和停征100项行政事业性收费。
2) Tax burden on businesses and individuals will be lowered. We will
implement existing preferential tax policies on real estate transactions and on small and medium-sized enterprises and policies on export tax rebates. A total
of 100 administrative fees will be either suspended or rescinded.
（3）优化财政支出结构。继续加大对改善民生、基础设施、灾后重建等领域的支持力度，严格控制一般性支出，压缩公务购车用车、会议经费、公务接待费、
出国（境）经费等支出。严格控制党政机关楼堂馆所建设。
3) The structure of government expenditures will be improved. More fiscal
support will be given to improvement in people's lives, infrastructure
development and post-earthquake reconstruction; general expenditures will be strictly controlled, and expenditures on official cars, meetings, receptions for official business and official visits overseas will be reduced. Construction of office buildings for Party and government organs will be strictly controlled.
更好地发挥货币政策在促进经济增长方面的积极作用。
We will make better use of monetary policy to stimulate economic growth.
（1）促进货币信贷供应总量合理增长。积极运用各种货币政策工具保持银行体系流动性充足。引导商业银行合理增加信贷投放，引导民间金融健康发展。
1) The total supply of money and credit will be increased by an appropriate amount. A wide range of monetary policy tools will be employed to maintain sufficient liquidity of the banking system. Commercial banks will be guided to appropriately increase their lending, and informal finance will be guided to
ensure their healthy development.
（2）优化信贷结构。坚持区别对待、有保有压，加大对民生工程、“三农”、重大基础设施建设、中小企业、自主创新、技术改造和兼并重组、节能减排、区域协调发展、扩大消费、灾后恢复重建等方面的信贷支持。支持房地产开发企业合
理的融资需求。
2) The credit structure will be improved. Following the policy of encouraging growth in some sectors and discouraging it in others, we will increase credit support for improvement in people's lives, agriculture, rural areas and farmers,
major infrastructure development, small and medium-sized enterprises, independent innovation, technological transformation, mergers and
reorganizations, energy conservation, pollution reduction, balanced regional development, consumption expansion and post-earthquake reconstruction. In addition, reasonable request of real estate developers for financing will be met.
（3）保持资本市场稳定健康发展。完善资本市场基础性制度，增强投资者信心。
3) Steady and healthy development of the capital market will be maintained. Capital market infrastructure will be improved to boost investor confidence.
（4）加强和改进金融监管。提高金融机构风险管理水平，推进金融体系安全网
建设，防范系统性金融风险。
4) Financial regulation and oversight will be strengthened. We will improve financial institutions' ability to manage risks, make progress in developing a security network for the financial system, and guard against systemic risks.
（5）保持人民币汇率基本稳定。20xx年，广义货币供应量（M2）预期增长17
％左右。
5) The RMB exchange rates will be kept basically stable. The broad money
supply (M2) in 2009 will be increased by about 17%.
保持固定资产投资较快增长。
Fairly rapid growth in investment in fixed assets will be maintained.
（1）加大政府投资力度。从20xx年四季度到20xx年底，中央政府拟新增投资
1．18万亿元，加上地方配套和社会投资，可形成约4万亿元的投资规模，重点用于加快保障性住房、农村民生工程、基础设施、社会事业、环境保护、结构调整和技术改造等方面建设和灾后恢复重建。20xx年，在上年末增加保障性住房、灾后恢复重建等中央政府公共投资1040亿元的基础上，中央政府公共投资安排9080亿元，比上年增加4875亿元。为增强地方安排配套资金和扩大政府投资的能力，国务院同意地方发行2000亿元债券，由财政部代理发行，列入省级预
算管理。
1) Government investment will be increased. The central government plans for
1.18 trillion yuan of investment from the fourth quarter of 2008 to the end of 2010, which, with the addition of investment from local governments and nongovernmental sources, will provide funds of about four trillion yuan. The money will be used primarily to speed up development of housing for low-to moderate-income families, projects to improve the well being of rural residents,
infrastructure, social programs, environmental protection, economic
restructuring and technological upgrading, as well as on post-earthquake reconstruction. In addition to the increased public investment of 104 billion
yuan it made at the end of last year to develop housing for low- to
moderate-income families and support post-earthquake recovery and
reconstruction, the central government is allocating 908 billion yuan for public investment in 2009, an increase of 487.5 billion yuan over last year. In order to
make local governments better able to finance related expenditures and increase investment, the State Council approved the issuance of 200 billion yuan of treasury bonds by the Ministry of Finance on their behalf, which will be
listed in provincial government budgets.
（2）发挥政府投资的引导作用。拓宽民间投资渠道和领域，扩大企业债券发行规模，支持民间资本投向符合国家产业政策的领域，吸引更多的社会资金参与政
府鼓励项目特别是灾后重建中的基础设施项目建设。
2) Government investment will be used to guide other types of investment to desirable areas. New channels and areas for nongovernmental investment will
be opened. More corporate bonds will be issued. Investment of
nongovernmental capital in areas that accord with the state's industrial policy
will be encouraged. More non-state funds will be attracted to projects
encouraged by the government, especially infrastructure projects for
post-earthquake reconstruction.
（3）加强投资项目和资金管理。严格执行建设程序，坚决防止新一轮高耗能、高污染、低水平重复建设。进一步加强对政府投资项目的全过程监督检查，确保项目工程质量，严禁截留挪用、滞留不用和浪费建设资金，努力提高投资效益。
20xx年，全社会固定资产投资总规模预期增长20％。
3) Supervision of investment projects and investment funds will be tightened. Construction procedures will be strictly followed to firmly block a new round of energy-intensive, highly polluting, low-level and redundant projects. Oversight and inspection of the entire construction process on projects funded by the government will be intensified to ensure project quality. Nobody will be allowed to misappropriate, hold back or waste development funds, and all funds will be used effectively. China's total investment in fixed assets will grow by 20% in
2009.
着力扩大消费尤其是居民消费。
We will work hard to expand consumption, particularly consumer spending.
（1）千方百计增加居民收入，提高消费能力。继续提高农资综合直补、良种补贴、农机具补贴等标准并扩大规模，提高企业退休人员基本养老金水平，提高城乡居民最低生活保障标准，提高优抚对象等人员抚恤和生活补助标准，增加居民
财产性收入。
1) We will do everything possible to increase personal incomes and boost consumption. We will continue to raise general direct subsidies for agricultural
supplies, subsidies for superior varieties of crops, and subsidies for the purchase of agricultural machinery and tools, and expand coverage of the subsidies. We will raise basic old-age pensions for enterprise retirees and cost
of living allowances for urban and rural residents. We will increase the
subsidies and living allowances for members of entitled groups and other eligible people. Personal income from property will also be increased.
（2）培育消费热点，拓展消费空间。鼓励普通商品住房消费，支持居民购买用于自住的住房，规范发展二手房市场和住房租赁市场。落实车购税减征和下乡补贴政策，稳定扩大汽车、摩托车消费。大力发展社区商业、物业、家政等服务性消费，积极开发与节假日调整相适应的旅游、文化、体育健身和网络、动漫等热
点消费。加快发展电子商务。
2) New growth areas of consumption will be fostered and developed. Purchase of ordinary commodity housing will be encouraged. Purchase of homes for non-investment purpose will be supported. The used home market and the
market for rental housing will be standardized and developed. We will
implement policies to reduce the vehicle purchase tax and subsidize rural residents' vehicle purchases to stabilize and increase consumer spending on cars and motorcycles. Consumption for community-based services such as retail outlets, property management and domestic service will be strongly developed. Consumption in the areas of tourism, culture, sports and fitness as
well as animation and the Internet will be vigorously promoted to meet
consumer needs arising from the revision of the schedule of national legal
holidays. Development of e-commerce will be accelerated.
（3）完善消费政策，优化消费环境。增加消费信贷，加强城乡消费设施和服务体系建设，在全国推广“家电下乡”政策，增加热水器、计算机、空调、微波炉、电磁炉等补贴品种，加快建设“万村千乡”市场工程，推进连锁经营向农村延伸。改善城市社区便民服务设施。加强涉农、涉企、交通、教育、医药、房地产等价
格收费的监督检查，维护消费者合法权益。
3) We will improve the consumption environment and consumption-related policies. We will increase consumer credit, strengthen urban and rural
consumption infrastructure, and improve the system of consumer services. The policy to promote the purchase of domestic appliances by rural residents will be carried out throughout the country, and more appliances such as water heaters, computers, air-conditioners, microwave ovens and induction cookers will be available at subsidized prices. We will speed up efforts to encourage retailers to open stores in more townships and towns and expand chain
operations in rural areas. Community services and facilities for the
convenience of urban residents will be improved. We will tighten oversight and review of prices and charges related to agriculture, enterprises, transportation, education, medical care, drugs and real estate to protect consumers' legitimate
rights and interests.
（4）改善居民消费预期，增强消费意愿。努力消除制约消费的制度和政策障碍，适时增加对生活困难群众和家庭经济困难学生补助，减少居民扩大消费的后顾之忧，扩大即期消费。20xx年，社会消费品零售总额预期增长14％。这一指标既考虑了近年来社会消费品零售总额持续较快增长，扩大消费政策的力度不断加大、效果逐步显现；又考虑了今年物价涨幅将比上年明显回落，以及就业压力和
居民收入增长难度加大等因素对消费需求的影响。
4) Consumer expectations will be improved to increase people's willingness to spend. Regulations and policies restricting consumption will be eliminated. We will increase subsidies for poor people and students from poor families as needed. We will stimulate immediate consumption by allaying people's concerns that increasing consumption will make them unable to meet basic living needs later on. China's retail sales of consumer goods will rise by 14% in 2009. This figure is based on the fact that retail sales of consumer goods have experienced sustained rapid growth in recent years, that we have adopted more, effective policies for stimulating consumption and they are gradually achieving noticeable results, and that prices are projected to rise much less this year, as well as other factors that will influence consumer demand such as
greater difficulty in creating jobs and increasing personal income.
搞好经济运行调节。充分发挥煤电油气运保障工作协调机制的作用。及时解决居民生活、发电和供热等重点用煤以及运输问题，做好电量安排、跨省区电能交易和优化调度，搞好成品油总量平衡和产运需衔接，确保民生、公交及公共事业等重点需求。保障灾区等重点地区和重点时段煤电油气运供应。完善应急机制和预
案，增加应急物资储备，切实加强应急体系建设。
We need to do a good job regulating economic activities. We will make full use of the mechanism for coordinating distribution of coal, electricity, petroleum,
gas and transport services to ensure their sufficient supplies. We will promptly solve problems relating to the supply and transportation of coal for key areas such as home use, power generation and heating supply. We will effectively allocate electricity, facilitate cross-province trade in power generating capacity and optimize electricity distribution. We will balance supply and demand for refined petroleum products and coordinate their production and transportation with demand. All these measures will enable us to meet the demand for energy in people's lives, public transportation, public utilities and other key areas. We
will ensure that sufficient supplies of coal, electricity, petroleum, gas and transport capacity reach disaster-stricken areas and other key areas at crucial times. We will improve emergency response plans and mechanisms, increase
reserves of goods and materials for possible emergencies, and work
effectively to strengthen the emergency response system.
（二）巩固和发展农业农村的好形势，保障农产品有效供给、促进农民持续增收。
2. We will consolidate and develop our achievements in agriculture and rural areas, ensure an effective supply of farm products and help bring about a
steady increase in rural incomes.
认真落实党的十七届三中全会精神，坚持把“三农”工作作为全部工作的重中之
重，把提高农民收入、夯实农业基础作为扩大内需的重要内容。
Conscientiously following the guiding principles set out at the Third Plenary Session of the Seventeenth CPC Central Committee, we will ensure that our work relating to agriculture, rural areas and farmers continues to be a top priority, and we will increase rural incomes and shore up the agricultural
foundation as an important means of expanding domestic demand.
（1）加大投入力度。大幅度增加国家对农村基础设施建设和社会事业发展的投入，大幅度提高政府土地出让收益、耕地占用税新增收入用于农业的比例，大幅度增加对中西部地区农村公益性建设项目的投入，新增国债也要向农村倾斜。20xx年，中央财政拟安排“三农”投入7161亿元，比上年增加1206亿元。同时，创新投入激励机制，鼓励和引导社会各方面资金投向农业农村。建成一批大中型水利骨干工程，完成一批大中型病险水库除险加固任务，加快推进大型灌区节水改造和续建配套、水源工程等重点项目建设。切实办好水、电、路、气、房五件实事，推进农村饮水安全工程建设，再解决6000万人口的安全饮水问题，新增农村沼气用户500万户，加快农村电网改造，积极推进农村公路改扩建工程，扩大游牧民定居工程和农村危房改造试点。建立粮食主产区利益补偿制度，加大对产粮大县一般性转移支付、财政奖励和粮食产业建设项目的扶持力度，完善粮
食风险基金政策。
1) We will increase investment. We will greatly increase government
investment in rural infrastructure and social programs, considerably increase the proportion of government land transfer income and the proportion of increased tax revenue from the non-agricultural use of farmland that is spent on agriculture, and substantially increase investment in rural public works projects in the central and western regions. Also, funds from the issuance of new treasury bonds will go disproportionately to rural areas. The central
government will allocate a total of 716.1 billion yuan this year to support agriculture, rural areas and farmers, an annual increase of 120.6 billion yuan. In addition, we will make innovations in investment incentives and encourage and guide nongovernmental capital of all kinds to invest in agriculture and rural areas. Several large and medium-sized key water conservancy projects will be completed. A number of dangerous large and medium-sized reservoirs will be reinforced. We will accelerate development of key projects such as upgrading water-saving devices and building auxiliary facilities in large irrigated areas and building drought-relief water projects. We will do our work effectively in the five areas of water, electricity, roads, gas and housing. Work will continue on
the project to provide safe drinking water for rural residents to solve the
drinking water problems of another 60 million people. We will provide methane gas to an additional five million rural households and accelerate upgrading of rural power grids. Expansion and upgrading of rural roads will continue. Trials to build settlements for nomadic herdsmen and renovate dangerous rural houses will be extended to more areas. We will set up a system to compensate the major grain producing areas for the effects that growing grain has on their interests, increase general transfer payment and fiscal rewards to major grain producing counties and give them more support for their projects to develop
the grain industry. We will improve the policy on grain risk funds.
（2）稳定发展粮食和农业生产。落实最严格的耕地保护和最严格的节约用地制度，确保粮食播种面积不少于上年。实施新增千亿斤粮食生产能力规划，加快建设国家商品粮生产基地，实施优质粮食产业工程。支持粮油高产技术大面积集成示范。强化支持粮食、油料、生猪等生产发展的各项政策，继续抓好奶业整顿和振兴工作。加强化肥价格监管。发展畜牧水产规模化标准化健康养殖，加快建设动植物疫病防控体系、农产品质量安全检验检测体系、种养业良种繁育体系、农产品批发市场、粮油仓储及现代物流设施。20xx年，力争粮食产量稳定在5亿
吨水平。
2) We will maintain and increase grain and agricultural production. We will adhere to the strictest possible systems for protecting farmland and for using land economically and make sure that the total grain acreage is no less than last year. The plan to increase China's grain production capacity by 50 million tons will be implemented, and development of national bases for commercial
grain production will be accelerated. We will carry out the project to
industrialize production of high-quality grain crops. We will give support to demonstration projects of integrated technologies that produce high yields of grain and oilseed in large areas. Policies to support the production of grain, oilseed and hogs will be strengthened. Work will continue to rectify and revitalize the dairy industry. Oversight of fertilizer prices will be intensified.
Large-scale, standardized practices for healthy production in animal
husbandry and aquaculture will be developed. Development of the system for prevention and control of animal and plant epidemics, the system for quality
and safety inspection and testing of farm products, and the system for
cultivating superior varieties and breeds will be accelerated. Development of
wholesale markets for farm products, grain and oil storage facilities, and modern logistics facilities will be stepped up. We will strive to keep the
country's grain output stable at 500 million tons in 2009.
（3）促进农民增收。大力发展特色现代农业，发展农村二、三产业特别是农产品加工业。加快乡镇企业发展和小城镇建设，继续实施经济综合开发示范镇项目，壮大县域经济。加强农村职业教育和劳动力转移就业培训。落实国家保护农
民工权益的各项政策，积极支持返乡农民工就业创业。
3) We will increase rural incomes. We will vigorously develop modern
agriculture with distinctive features and rural secondary and tertiary industries, particularly the processing of farm products. Development of rural enterprises and small cities and towns will be accelerated. We will continue to run projects
to develop model towns to demonstrate comprehensive economic
development. We will strengthen local economies of counties. We will increase vocational education and technical training in rural areas to make it easier for rural residents to find non-farm jobs. State policies will be implemented to protect the legitimate rights and interests of rural migrant workers in cities, and
those who return home will be encouraged to find jobs or start their own
businesses in their hometowns.
（4）稳定农产品价格。运用提高最低收购价、储备吞吐、临时收储、跨区调运、进出口等多种调控手段，稳定粮食、食用植物油、棉花、食糖、生猪等主要农产品价格。20xx年，小麦、稻谷最低收购价平均每斤分别提高0．11元和0．13
元。
4) We will keep farm product prices stable. We will stabilize the prices of major agricultural products such as grain, edible vegetable oil, cotton, sugar and hogs through a combination of control policies, including raising purchase price floors, manipulating reserves, temporary purchasing and stockpiling, shipping to other regions, and exporting and importing. The minimum
purchase prices of wheat and rice in 2009 will be raised by 0.22 yuan and 0.26
yuan per kilogram respectively.
（5）深化农村综合改革。着力增强乡镇政府社会管理和公共服务职能，建立健全村级公益事业建设“一事一议”财政奖补机制。全面推进集体林权制度改革。加强土地承包经营权流转管理和服务。统筹做好国有农场体制改革和农村其他各项
改革。
5) We will deepen overall rural reform. We will make township and town governments better able to provide social management and deliver public services. We will set up a sound government reward and subsidy system for village-level public works projects, the launching of which will be determined by the villagers through deliberation. We will comprehensively implement reform of collective forest rights. We will strengthen supervision of and services for trade in contracted land-use rights. We will make overall arrangements to reform the system of state-owned farms and carry out other rural reforms.
（三）加快自主创新和产业升级，进一步增强经济竞争优势。
3. We will accelerate independent innovation and industrial upgrading and
further strengthen the competitive advantages of the economy.
（1）组织实施重点产业调整和振兴规划。坚持标本兼治、远近结合，加强企业技术改造、推动兼并重组、淘汰落后产能、开发重大产品、创新重大技术、布局重大项目等多种措施的统筹组合，保护和发展好钢铁、汽车、船舶、石化、纺织、轻工、有色金属、装备制造、电子信息等重点产业、骨干企业、重要品牌和重要
的市场份额。
1) We will implement plans to restructure and reinvigorate key industries. Following the principles of addressing both the symptoms and root causes of problems and taking into account both long-term and short-term needs, we will
adopt a combination of well-coordinated measures, including intensifying
technological transformation of enterprises, promoting mergers and
reorganizations, shutting down backward production facilities, developing major products, innovating major technologies, and apportioning key
development projects, to protect and develop key industries, such as the steel,
automobile, shipbuilding, petrochemical, textile, non-ferrous metals,
equipment manufacturing, electronic information and light industries, as well
as leading enterprises and name brands and their market shares.
（2）增强自主创新能力。制定生物、软件和集成电路等产业政策。加大国有资本经营预算资金和中央政府投资力度，支持企业在生物医药、第三代移动通信、节能环保汽车等方面开展研发和推进产业化。抓紧组织实施国家重大科技专项，攻克一批具有全局性、带动性的关键共性技术。加快科技基础平台建设，推进大型天文望远镜、海洋科学考察船等重大科技基础设施建设和知识创新三期工程。继续组织建设一批工程中心、国家工程实验室和企业技术中心。大力推进企业技术改造，拟安排专项技改资金200亿元。形成一批技术创新服务平台，加快推广应用自主创新技术和产品。加大知识产权保护力度。20xx年，研究与试验发
展经费支出占国内生产总值比例力争达到1．58％。
2) We will improve the country's capacity for independent innovation. Industrial policies concerning biotechnology, software and integrated circuits will be formulated. More investment from the budget for state capital operations and from the central government budget will be given to enterprises to carry out R&D on technologies for biomedicine, third generation mobile communications, and energy-efficient, environmentally friendly automobiles, and to apply these technologies in production. We will quickly organize the implementation of major state science and technology projects to make breakthroughs in the key,
generic technologies that have wide application and can foster the
development of other technologies. We will accelerate development of the national science and technology infrastructure program, develop large
astronomical telescopes and oceanographic research vessels and make further progress in the third phase of the Knowledge Innovation Program. We will continue to develop a group of engineering research centers, national engineering laboratories and enterprise technology centers. We will allocate a
fund of 20 billion yuan to promote technological transformation of enterprises. We will set up a number of service platforms for technological innovation and accelerate extensive application of domestically developed technologies and products. We will strengthen the protection of intellectual property rights. We will strive to raise government spending on R&D up to 1.58% of GDP in 2009.
（3）加快发展高技术产业和装备制造业。实施好信息、生物、新材料、新能源、民用航空航天等领域高技术产业化专项，集中力量推动下一代互联网、数字电视等重大高技术产业工程建设。进一步加强国家高技术产业基地和产业链建设。研究设立高技术产业创业投资引导基金。做大做强先进装备制造业。实施重大技术装备国内依托工程，落实购买和使用国产首台（套）重大技术装备的优惠政策。增强国产支线飞机自主设计与规模生产能力，推动大型核电、风电装备和高速列
车等重大装备本地化。
3) We will accelerate development of high-tech industries and equipment manufacturing. We will carry out projects to promote industrial application of high technologies such as information, biotechnology, new materials, new energy sources, civil aviation and civil aerospace, focusing on major high-tech industrial projects such as the next-generation Internet and digital television. We will increase efforts to develop national high-tech industrial bases and industry chains. We will explore ways to set up venture capital guidance funds for high-tech industries. We will help the advanced equipment manufacturing industry become bigger and stronger. We will carry out projects to support domestic development and production of major technical equipment, and implement policies for giving preferential treatment for the purchase and use of key equipment that is newly developed and manufactured domestically. We will strengthen the country's capacity for independent design and mass production of regional airplanes and promote domestic development and manufacturing of large equipment such as large-capacity nuclear power
generators, wind power facilities and high-speed trains.
（4）促进服务业改革与发展。加强对现代服务业的支持，规范提升传统服务业。促进现代物流、信息、金融、咨询等服务业与现代制造业有机融合、互动发展。
发展就业吸纳能力强和市场需求大的生活性服务业。
4) We will promote reform and development of the service sector. We will give more support to modern services while standardizing and upgrading traditional services. We will promote the integration of service industries, such as modern
logistics, information technology, finance and consultancy, with modern manufacturing industries so that they can help each other develop. We will encourage the development of consumer services that can create more jobs
and are urgently needed in the market.
（5）大力推进企业重组。鼓励行业龙头企业、优势企业兼并落后企业、困难企业，鼓励优势企业强强联合，鼓励关联企业、上下游企业联合重组，形成一批实
力雄厚、竞争力强的大企业和企业集团。
5) We will vigorously promote reorganization of enterprises. We will encourage
leading and superior enterprises to acquire those that are backward or
financial strapped, encourage well-established enterprises to consolidate, and encourage affiliated enterprises and upstream and downstream enterprises to integrate in order to form a group of strong, competitive large enterprises and
conglomerates.
（6）采取更有力措施支持中小企业发展。落实融资担保、贴息等扶持政策，增加财政性专项资金规模，中央财政中小企业发展资金从39亿元增加到96亿元，
健全社会化服务体系，扩大中小企业市场准入范围。
6) We will take more effective measures to support development of small and medium-sized enterprises. We will provide them with finance guarantees and interest subsidies, and increase the amount of government funds earmarked for them, with the central government funding for supporting their development to be raised from 3.9 billion yuan to 9.6 billion yuan. We will also improve the system under which various sectors of society provide services for them, and
offer them better market access.
（7）着力解决交通运输“卡脖子”路段，进一步优化能源结构。提高西煤东运下海和新疆煤外运能力，加强铁路客运专线、进出关通道和“三西”煤炭直达华中铁路建设。加快国家高速公路网和中西部机场建设。推进大型煤炭基地、西气东输、
西电东送和城市电网改造工程建设。
7) We will work hard to resolve transportation bottlenecks and continue to upgrade energy structure. We will strengthen the capacity for transporting coal
from the west to eastern ports and for transporting coal out of Xinjiang, improve passenger rail lines, and build more railways connecting to northeast China and more railways that directly connect coalmining bases in Shanxi and Shaanxi provinces and western Inner Mongolia with railways in central China. We will accelerate development of the national network of expressways and construction of airports in the central and western regions. In addition, we will promote development of large coalmining bases and carry out projects to send electricity and gas from the west to the east, and upgrade urban power grids.
（四）继续推动区域经济协调发展，缩小区域差距、优化生产力布局。
4. We will promote balanced economic development among regions, reduce the gap in their development and improve distribution of the production forces
among them.
（1）继续实施西部大开发战略，新开工一批重点基础设施建设项目，巩固退耕还林、退牧还草等重点生态工程建设成果。加大沿海对口支援西部力度，推动东西部共建产业园区和东部向西部产业转移。落实好支持青海等省藏区、重庆、西藏、宁夏、新疆等地区经济社会发展的政策措施。促进重点经济区域加快发展。
加快提升沿边开放水平。
1) We will continue to implement the strategy of large-scale development of the western region, start construction on a number of key infrastructure
projects, and consolidate progress in key ecological projects, such as returning farmland to forests and grazing land to grassland. We will encourage coastal areas to increase their one-to-one assistance to designated areas in the
western region, eastern and western regions to jointly establish industrial zones, and the east to relocate industries to the west. We will effectively
implement policies and measures to support economic and social
development of Chongqing, Tibet, Ningxia, Xinjiang and Tibetan ethnic areas
in some provinces including Qinghai. Key areas will be encouraged to
accelerate economic development. We will speedily open up border areas
wider.
（2）继续推动东北地区等老工业基地深化改革、扩大开放，加快传统产业技术改造和优化升级，推进粮食和农牧业生产基地建设，振兴装备制造业，发展优势特色产业，加强交通基础设施建设。完成第二批资源枯竭城市界定工作，实施资
源型城市吸纳就业、资源综合利用和发展接续替代产业专项。
2) Northeast China and other old industrial bases will be encouraged to
deepen reform and make their economies more open. They need to accelerate technological transformation and upgrading in traditional industries, promote development of grain-producing bases and farming and ranching centers, invigorate equipment manufacturing, develop industries with local advantages, and improve transportation infrastructure. We will complete specification of a second group of cities dependent on now-depleted resources, and launch projects to help resource-dependent cities create employment opportunities,
comprehensively utilize resources and develop alternative industries.
（3）加大对中部地区优化结构和深化改革的支持力度，落实国家已经出台的政策，加快粮食、能源原材料、现代装备制造及高技术产业基地和综合交通运输枢
纽体系建设。
3) We will give stronger support to the central region to help it upgrade
industrial structure and deepen reform. While effectively implementing current policies designed for the region, we will accelerate development of bases for
grain production, energy resources, raw materials, modern equipment
manufacturing and high technologies, plus a system of integrated
transportation hubs.
（4）推动东部地区加快经济转型、产业升级和体制创新，优先发展现代服务业、先进装备制造业、高新技术产业，注重发展海洋经济，形成新的竞争优势。
4) The eastern region will be encouraged to accelerate economic
transformation, industrial upgrading and institutional innovation. It should give
priority to developing modern services, the advanced equipment
manufacturing and new- and high-tech industries, and vigorously develop the
marine economy to create new competitive advantages.
（5）大力扶持革命老区、民族地区、边疆地区和贫困地区的发展，使这些地区
的人民群众共享改革发展成果。
5) We will give more support to old revolutionary areas, ethnic minority areas, border areas and poor areas to help them develop so that people there can
share in the fruits of reform and development.
（6）促进区域间生产要素合理流动和梯度转移，加快区域经济一体化进程。支持各地从实际出发，在应对外部冲击中积极发展各具特色的优势产业，培育新的
经济增长点。
6) We will promote rational and progressive movement of factors of production between regions and accelerate cross-region economic integration. We will support local governments in responding to the impact of external events in light of their conditions, developing distinctive industries with local advantages
and fostering new areas of economic growth.
（7）制定和实施全国主体功能区规划，明确分类调控的区域政策、各有侧重的
绩效评价考核办法。
7) We will formulate and implement a plan for national development priority zones, and lay out a policy for regulating them differently and a procedure for
using different criteria to assess their performance.
（五）坚定不移地深化改革扩大开放，完善有利于科学发展的体制机制。
5. We will unswervingly deepen reform and expand opening up, and improve
systems and mechanisms conducive to scientific development.
（1）稳步推进价格改革。落实好成品油价格和税费改革各项政策，完善配套措施，建立有利于科学发展的成品油价格和税收机制。继续深化电价改革，逐步完善上网电价、输配电价和销售电价形成机制。适时理顺煤电、天然气价格。推进水价改革，继续推行非居民用水超定额累进加价制度，逐步提高水利工程供非农
业用水价格。
1) Reform of the pricing system will progress steadily. We will implement policies for reforming prices of refined petroleum products and related taxes and fees, improve supporting measures, and establish a mechanism for setting prices and related taxes for them that is conducive to scientific
development. We will deepen reform of electricity prices, and gradually improve the mechanism for setting the price of electricity supplied to power grids, the price for its transmission and distribution, and the price for its sale to end-users. Prices for coal, electricity and natural gas will be adjusted when
necessary. We will carry out water price reform, continue to impose
progressive surcharges on non-household consumers that exceed water use
quotas, and gradually increase prices for water supplied from water
conservancy projects for non-agricultural use.
（2）深化投资体制改革。健全政府投资管理体制，加快推行代建制。建立和推行投资项目后评价、重点项目公示和责任追究制度。进一步改革项目审批制度，规范核准和备案管理办法，缩减核准范围，科学界定核准权限，严格规范核准程
序。
2) Reform of the investment system will be deepened. We will improve the system for managing government investment, and accelerate implementation
of the contractor system for construction projects. We will create and
implement a system for assessing finished investment projects, a public notice
system for major investment projects and an accountability system for
decisions made on investment projects. We will continue to reform the system of project examination and approval, standardize the methods for approving and recording investment projects, reduce the range of approval, define approval authority scientifically and enforce approval procedures strictly.
（3）加大财税体制改革力度。贯彻实施新修订的增值税以及营业税、消费税暂行条例，全面实施增值税转型改革。加快推进资源税费改革，统一内外资企业和个人城建税、教育费附加制度。深化预算制度改革，推进省直管县财政管理方式
改革。
3) Reform the fiscal and taxation systems will be intensified. We will enforce the newly revised interim regulations on value-added tax, business tax and excise tax, and comprehensively implement VAT reform. We will accelerate
reform of resource taxes and fees, and make both domestic and
overseas-funded enterprises and Chinese and foreign nationals pay the same urban construction and maintenance tax and education surcharge. We will also deepen reform of the budgetary system and accelerate the reform to put county public finance directly under the supervision of provincial governments.
（4）稳步推进金融体制改革。加快中国农业银行股份制改革，大力发展新型农村金融机构，继续推进政策性银行改革。发展多层次资本市场，积极稳妥推出创业板，进一步完善创业投资、股权投资和债券融资的市场制度和环境，健全市场
化发行机制和发债主体自我约束机制。
4) Reform of the financial system will progress steadily. We will accelerate the
introduction of a stockholding system in the Agriculture Bank of China, vigorously develop new types of financial institutions in rural areas and continue to reform policy banks. We will develop a multi-level system for capital markets, vigorously yet prudently introduce a growth enterprise market, further improve the market systems and environment for venture capital, equity investment and debt financing, and strengthen the market-based system for
issuance of securities and the mechanism to get issuers to exercise
self-restraint.
（5）推进医药卫生体制改革。加快建设基本医疗保障制度，建立国家基本药物制度，进一步健全基层医疗卫生服务体系，完善公共卫生机构补助政策，实施公立医院改革试点，促进基本公共卫生服务均等化。与此同时，抓紧研究制定中长期改革规划，协调推进全国和省级综合配套改革试点。继续深化国有企业、垄断行业、行政管理体制等领域的改革，支持非公有制经济适应市场变化，克服当前
发展面临的困难。
5) Reform of the pharmaceutical and health care system will continue. We will accelerate establishment of a system of basic medical insurance, set up a national system for basic drugs, further improve the community-based medical and health service system, improve the policy for subsidizing public health institutions, and reform public hospitals on a trial basis in order to guarantee equal access to basic public health services. In addition, we will promptly deliberate and formulate long- and medium-term plans for reforms and
coordinate national and provincial-level pilot reforms to promote
comprehensive and sustainable development. We will continue to deepen reforms of state-owned enterprises, monopoly industries and the government administrative system and also help the non-public sector adapt to market changes and overcome difficulties presently hindering its development.
千方百计促进外向型经济稳定发展。
We will do everything possible to promote steady development of an outwardly
oriented economy.
（1）走以质取胜、集约化、多元化的发展路子，努力保持进出口稳定增长。及时完善政策措施，切实缓解外向型企业面临的突出困难；在巩固传统市场的同时，加快开拓前景广阔的新兴市场；积极推动与有关国家和地区的自贸区建设；稳步推进加工贸易转型升级，鼓励加工贸易企业延伸产业链条和向中西部地区转移；大力发展服务贸易，抓紧落实鼓励承接国际服务外包的政策措施，积极化解国际经贸摩擦。扩大先进技术装备、关键零部件、元器件和重要能源原材料进口，
增加国家战略物资和应急物资储备。
1) We will work hard to maintain steady export growth by competing on quality
and efficiency and diversifying export markets. We will promptly improve policies and measures to ease major difficulties of export-oriented enterprises.
We will speed up efforts to open up emerging markets that have strong demand while strengthening traditional markets. We will take an active part in setting up free trade zones with prospective countries and regions. We will steadily promote transformation and upgrading of processing trade and encourage enterprises engaging in it to extend their chains of production and relocate their production to the central and western regions. We will vigorously
develop trade in services, promptly implement policies and measures to encourage contracting of services outsourced on the international market and effectively ease trade frictions. We will increase imports of advanced technical equipment, key spare parts and components, and important energy resources and raw materials to build up the country's reserves of strategic goods and
emergency supplies.
（2）积极有效利用外资，提高利用外资质量。进一步改善投资环境，创新利用外资方式，引导外资投向高技术产业、先进制造业、节能环保产业和现代服务业。支持中西部地区发挥成本和资源优势承接外资转移。严格限制外商投资高耗能、高污染产业。完善国外贷款管理。20xx年，借用国外贷款安排258亿美元，外
商直接投资预期924亿美元。
2) We will utilize foreign capital actively and effectively. We will further improve the investment environment, utilize foreign funds in an innovative way, and
guide them toward industries such as high technology, advanced
manufacturing, energy conserving and environmental protection industries and modern services. The central and western regions will be supported in taking full advantage of their low costs and rich resources to attract foreign funds. We will severely restrict foreign investment in energy-intensive and highly polluting industries. Management of foreign loans will be improved. Foreign loans and
foreign direct investment in 2009 are expected to reach $25.8 billion and $92.4
billion respectively.