1、12011 年政府工作报告 2011 年 3 月 5 日 温家宝REPORT ON THE WORK OF THE GOVERNMENTDelivered at the Fourth Session of the Eleventh National Peoples Congress on March 5, 2011 Wen Jiabao Premier of the State Council各位代表，现在，我代表国务院，向大会作政府工作报告，请各位代表审议，并请全国政协委员提出意见。Fellow Deputies,On behalf of the State Council, I now p
2、resent to you my report on the work of the government for your deliberation and approval. I also invite the members of the National Committee of the Chinese Peoples Political Consultative Conference (CPPCC) to submit comments and suggestions.一、 “十一五”时期国民经济和社会发展的回顾I. Review of National Economic and S
3、ocial Development During the Eleventh Five-Year Plan Period “十一五”时期是我国发展进程中极不平凡的五年。面对国内外复杂形势和一系列重大风险挑战，中国共产党团结带领全国各族人民，全面推进改革开放和现代化建设，国家面貌发生了历史性变化。The Eleventh Five-Year Plan period was a truly extraordinary time in the course of the countrys development. In the face of complex domestic and internat
4、ional situations and a series of major risks and challenges, the Communist Party of China (CPC) united with and led the people of all the countrys ethnic groups in comprehensively advancing reform, opening up and modernization, bringing about a historic change in China over the past five years.这五年，我
5、国社会生产力、综合国力显著提高。我们有效应对国际金融危机冲击，保持经济平稳较快发展，胜利完成“十一五”规划的主要目标和任务，国民经济迈上新的台阶。国内生产总值达到 39.8 万亿元，年均增长 11.2%，财政收入从 3.16 万亿元增加到 8.31 万亿元。载人航天、探月工程、超级计算机等前沿科技实现重大突破。国防和军队现代化建设取得重大成就。-The countrys productive forces and overall national strength improved significantly. We effectively warded off the impact of t
6、he global financial crisis, maintained steady and rapid economic development and fulfilled the major objectives and tasks of the Eleventh Five-Year Plan, and the economy scaled new heights. GDP grew at an average annual rate of 11.2% to reach 39.8 trillion yuan. Government revenue increased from 3.1
7、6 trillion yuan to 8.31 trillion yuan. Major breakthroughs were attained in cutting-edge science and technology such as the manned space mission, the lunar exploration program and supercomputers. Great progress was made in the modernization of national defense and the army.这五年，各项社会事业加快发展、人民2生活明显改善。教
8、育、科技、文化、卫生、体育事业全面进步。城镇新增就业 5771 万人，转移农业劳动力 4500 万人；城镇居民人均可支配收入和农村居民人均纯收入年均分别实际增长 9.7%和8.9%；覆盖城乡的社会保障体系逐步健全。-Progress in all social programs accelerated and peoples lives improved significantly. Comprehensive progress was made in education, science and technology, culture, public health and sports pr
9、ograms. The number of new urban jobs increased by 57.71 million, and 45 million agricultural workers found urban employment. The per capita disposable income of urban residents rose by an annual average of 9.7% and the per capita net income of rural residents by 8.9% in real terms. The social securi
10、ty system covering both urban and rural areas was progressively refined.这五年，改革开放取得重大进展。重点领域和关键环节改革实现新突破，社会主义市场经济体制更加完善。去年对外贸易总额达到 2.97 万亿美元，开放型经济水平快速提升。- Major progress was made in reform and opening up. New breakthroughs were achieved in crucial areas and key links of reform, and the socialist mark
11、et economy further improved. Last year, total foreign trade volume reached US$ 2.97 trillion and the openness ofthe economy increased rapidly. 这五年，我国国际地位和影响力显著提高。我们在国际事务中发挥重要的建设性作用，有力维护国家主权、安全和发展利益，全方位外交取得重大进展。我们成功举办北京奥运会、上海世博会，实现了中华民族的百年梦想。- Chinas international prestige and influence grew signific
12、antly. We played an important and constructive role in international affairs; effectively safeguarded our national sovereignty, security and development interests; and made major progress in our all-around diplomacy. We successfully hosted the Beijing Olympics and Shanghai World Expo, thus fulfillin
13、g dreams the Chinese nation had cherished for a century. 这些辉煌成就，充分显示了中国特色社会主义的优越性，展现了改革开放的伟大力量，极大增强了全国各族人民的自信心和自豪感，增强了中华民族的凝聚力和向心力，必将激励我们在新的历史征程上奋勇前进。These brilliant achievements clearly show the advantages of socialism with Chinese characteristics and the great power of reform and opening up. They
14、greatly increased the confidence and pride of our people of all ethnic groups, strengthened the cohesiveness of the Chinese nation, and inspired us to forge ahead on our historic course. 五年来，我们主要做了以下工作：The following are our main accomplishments over the past five years:3（一）加强和改善宏观调控，促进经济平稳较快发展。我们注重把
15、握宏观调控的方向、重点和力度，牢牢掌握经济工作的主动权。 “十一五”前期，针对投资增长过快、贸易顺差过大、流动性过剩，以及结构性、输入性物价上涨等问题，采取正确的政策措施，有效防止了苗头性问题演变成趋势性问题、局部性问题演变成全局性问题。近两年，面对百年罕见的国际金融危机冲击，我们沉着应对、科学决策，果断实行积极的财政政策和适度宽松的货币政策。坚持实施一揽子计划，大规模增加政府支出和实行结构性减税，大范围实施重点产业调整振兴规划，大力推进自主创新和加强科技支撑，大幅度提高社会保障水平。坚持扩大内需的战略方针，采取鼓励消费的一系列政策措施，增加城乡居民特别是低收入群众收入，消费规模持续扩大，结构
16、不断升级。实施两年新增 4 万亿元的投资计划，其中，新增中央投资 1.18 万亿元。保障性安居工程、农村民生工程和社会事业投资占 43.7%，自主创新、结构调整、节能减排和生态建设占 15.3%，重大基础设施建设占 23.6%，灾后恢复重建占 14.8%。政府投资引导带动社会投资，国内需求大幅增加，有效弥补外需缺口，较短时间内扭转经济增速下滑趋势，在世界率先实现回升向好，既战胜了特殊困难、有力地保障和改善了民生，又为长远发展奠定了坚实基础。1.Strengthening and improving macro-control, and spurring steady and rapid eco
17、nomic development We paid close attention to the orientation, focus and strength of macro-control and kept a firm grasp on the initiative in our economic work. In the early stages of the Eleventh Five-Year Plan period, we adopted correct policies and measures to address overheated investment growth,
18、 the excessive trade surplus, excess liquidity, and structural and imported inflation; effectively prevented emerging problems from evolving into trends; and prevented problems in anyone area from becoming general problems. In the last two years, we responded coolly to the impact of the global finan
19、cial crisis a crisis of a severity seldom seen in the last century, made decisions scientifically and resolutely followed a proactive fiscal policy and moderately easy monetary policy. We steadfastly implemented a multi-point plan, greatly increased government spending and made structural tax reduct
20、ions, carried out the plan for restructuring and reinvigorating key industries on a large scale, vigorously promoted innovation and increased support for work in science and technology, and substantially increased social security benefits. We steadfastly followed a strategy of expanding domestic dem
21、and; adopted policies and measures to encourage consumer spending; and increased urban and rural incomes, particularly for low-income people. As a result, consumer spending grew steadily and its structure constantly improved. We carried out a two-year investment plan to increase spending by 4 trilli
22、on yuan, including 1.18 trillion yuan from the central government. Of this amount, 43.7% was invested in low-income housing projects, projects to improve the wellbeing of rural residents, and social programs; 15.3% in innovation, restructuring, energy conservation, 4emissions reductions and ecologic
23、al improvement; 23.6% in major infrastructure projects; and 14.8% in post-Wenchuan earthquake recovery and reconstruction. Government spending guided and drove nongovernmental investment, greatly increased domestic demand and effectively compensated for weak external demand. This helped to reverse t
24、he slowdown in economic growth in a relatively short time and make the Chinese economy the first in the world to pick up again. In this way, we not only got over the hard times and ensured and improved the wellbeing of the people, but also laid a firm foundation for long-term development. （二）毫不放松地做好
25、“三农”工作，巩固和加强农业基础。中央财政“三农”投入累计近 3 万亿元，年均增幅超过 23%。彻底取消农业税和各种收费，结束了农民种田交税的历史，每年减轻农民负担超过 1335 亿元。建立种粮农民补贴制度和主产区利益补偿机制，农民的生产补贴资金去年达到 1226亿元。对重点粮食品种实行最低收购价和临时收储政策，小麦、稻谷最低收购价提高了 25%到40%。严格保护耕地。着力推进农业科技进步。粮食产量屡创历史新高，去年达到 1.09 万亿斤，连续 7 年增产；农民人均纯收入达到 5919 元，实现持续较快增长。农村综合改革稳步推进，集体林权制度改革、国有农场管理体制改革全面推开。农业农村基础设施
26、加快建设，完成 7356 座大中型和重点小型水库除险加固，解决 2.15 亿农村人口饮水安全问题，农民的日子越过越好，农村发展进入一个新时代。2. Striving to do our work related to agriculture, rural areas, and farmers well, and consolidating and strengthening the agricultural foundation Central government spending on agriculture, rural areas and fanners totaled nearly
27、3 trillion yuan and grew at an average annual rate of more than 23%. Agricultural tax and various government charges were totally abolished, thereby ending the history of farmers paying taxes on the crops they grow and easing their annual burden by more than 133.5 billion yuan. We set up a subsidy s
28、ystem for grain growers and a benefit subsidy system for major growing areas, and paid out 122.6 billion yuan in production subsidies to grain growers last year. Minimum purchase prices and temporary purchase and storage policies were put in place for key grain varieties, and the minimum purchase pr
29、ices for wheat and rice were raised by between 25% and 40%. We rigorously safeguarded arable land. We worked hard to make advances in agricultural science and technology. New record highs were set for grain production, which reached 545 billion kg last year, the seventh consecutive yearly increase.
30、The per capita net income of farmers continued to grow rapidly and reached 5,919 yuan. We made steady progress with comprehensive reforms in the countryside and fully implemented the reform of tenure in collective forests and the system for managing state-owned farms. We accelerated agricultural and
31、 rural infrastructure 5development. We finished reinforcing 7,356 large and medium-sized reservoirs and key small reservoirs and ensured the safety of drinking water for 215 million rural residents. Farmers lives constantly improved and rural development entered a new era.（三）大力推进经济结构调整，提高经济增长质量和效益。一
32、是加快产业结构调整和自主创新。积极推进企业技术改造和兼并重组，工业特别是装备制造业总体水平和竞争力明显提高。战略性新兴产业迅速成长。加快建设国家创新体系，实施知识创新工程和技术创新工程，突破了一批产业发展急需的前沿技术、核心技术和关键装备技术，一大批科研成果实现了产业化。服务业快速发展，在国内生产总值中占比提高 2.5 个百分点。基础设施建设明显加快，五年建成铁路新线 1.6 万公里，新增公路 63.9 万公里，其中高速公路 3.3 万公里，新建、改扩建机场 33 个，新建和加固堤防 1.7 万公里。二是扎实推进节能减排、生态建设和环境保护。提出到 2020 年我国控制温室气体排放行动目标和政
33、策措施，制定实施节能减排综合性工作方案。大力发展清洁能源，新增发电装机容量 4.45 亿千瓦，其中水电 9601 万千瓦、核电 384 万千瓦。关停小火电机组 7210 万千瓦，淘汰了一批落后的煤炭、钢铁、水泥、焦炭产能。推进林业重点生态工程建设，完成造林 2529 万公顷。综合治理水土流失面积23 万平方公里，加强重点流域水污染防治、大气污染防治和工业“三废”治理。大力发展循环经济。五年累计，单位国内生产总值能耗下降 19.1%，化学需氧量、二氧化硫排放量分别下降12.45%、14.29%。三是促进区域经济协调发展。落实区域发展总体战略，颁布实施全国主体功能区规划，制定西部大开发新十年指导意
34、见和一系列区域发展规划，推出促进西藏和四省藏区、新疆等民族地区跨越式发展的新举措。中西部和东北地区发展加快，经济增速等主要指标超过全国平均水平；东部地区经济结构不断优化，自主创新和竞争力逐步提高；地区间基本公共服务差距趋于缩小，各具特色的区域发展格局初步形成。3. Strongly promoting economic restructuring and improving the quality andperformance ofeconomic growthFirst, we accelerated industrial restructuring and innovation. We v
35、igorously carried out technological upgrading in enterprises and enterprise mergers and reorganizations, which noticeably raised the overall level and competitiveness of Chinese industries, particularly equipment manufacturing. Strategic emerging industries grew rapidly. We accelerated the developme
36、nt of the national innovation system; carried out knowledge innovation projects and technology innovation projects; and made breakthroughs in urgently needed cutting-edge technologies, core technologies and key equipment technologies. A large number of research results have been applied in industria
37、l production. The service industry developed quickly and the proportion it contributes to GDP rose by 2.5 percentage points. We greatly accelerated 6infrastructure development. We expanded the railway system by 16,000 km over the past five years and the road system by 639,000 km, including 33,000 km
38、 of expressways. We built, improved or expanded 33 airports and built or reinforced 17,000 km of dykes.Second, we made genuine progress in energy conservation, emissions reduction, ecological improvement and environmental protection. We formulated policies, measures and national objectives for contr
39、olling greenhouse gas emissions by 2020 and drew up a comprehensive work plan for conserving energy and reducing emissions. We vigorously developed clean energy. New power generating units with a capacity of 445 million kW were put on line, including hydropower plants with 96.01 million kW capacity
40、and nuclear pmver plants with 3.84 million kW capacity. We decommissioned small thermal power plants with a capacity of 72.1 million kW and eliminated a number of outdated coal, steel, cement and coke production facilities. We made progress on key ecological forestry projects, and afforested a total
41、 of 25.29 million hectares. We applied a combination of approaches to control soil erosion on 230,000 km2 of land, and strengthened efforts to control water and air pollution in key watersheds, prevent and control air pollution and control industrial wastewater, waste gases and residues. We strongly
42、 promoted the development of the circular economy. Energy consumption per unit of GDP fell 19.1%, chemical oxygen demand by 12.45% and sulfur dioxide emissions by 14.29%.Third, we worked to balance regional economic development.We implemented a master strategy for regional development, issued and im
43、plemented the national plan for development priority zones; fommlated new 10-year guidelines for the large-scale development of the western region and a number of regional development plans; and introduced new measures to stimulate development by leaps and bounds in Tibet, Tibetan ethnic areas in Si
44、chuan, Yunnan, Gansu and Qinghai provinces, Xinjiang and other ethnic minority areas. Development accelerated in the central and western regions and northeast China, and their economic growth rates and other main economic indicators were higher than the national average. The economic structure of th
45、e eastern region constantly improved, and its innovativeness and competitiveness gradually increased. Discrepancies in levels of basic public services among regions were decreasing, and the development of each region was taking on unique characteristics.（四）坚定不移深化改革开放，增强经济社会发展内在活力。财政转移支付制度逐步完善，县级基本财力
46、保障机制初步建立。增值税转型全面实施，成品油价格和税费改革顺利推进，资源税改革启动试点，内外资企业税制全面统一。国有大型商业银行股份制改革顺利完成，政策性金融机构改革、农村信用社改革积极推进；平稳解决上市公司股权分置问题，创业板、股指期货和融资融券顺利推出，债券市场稳步发展；深入推进保险业改革开放；7人民币汇率形成机制改革有序推进，跨境贸易人民币结算试点不断扩大。国有企业公司制股份制改革、国有资产监管体制改革取得积极进展。邮政体制改革加快推进。制定实施促进中小企业发展和民间投资的一系列政策，非公有制经济发展环境不断改善，多种所有制经济共同发展。4. Determinedly working t
47、o deepen reform and opening up, and strengthening the internal vitality ofeconomic and social development We gradually improved the system of transfer payments and set up a rudimentary mechanism for ensuring basic funding for county-level governments. We comprehensively carried out VAT reform. The r
48、eform of prices of refined oil products and related taxes and fees was implemented smoothly. Trials were launched for the reform of resource taxes, and the corporate tax systems for domestic and overseas-funded enterprises were unified. The reform to convert large state-owned commercial banks to sto
49、ckholding companies was smoothly completed, and the reform of policy-based financial institutions and rural credit cooperatives is well underway.We steadily resolved the issue of Hoating non-tradable shares of listed companies; successfully launched the ChiNext stock market; and introduced stock index futures and securities margin trading, The market for government bonds developed steadily. We deepened the reform and opening up of the insurance industry. Orderly progress was made in reforming the mechanism for setting the RMB exchange rate, and the trials of
