关于深化经济体制改革的若干问题
On Deepening Economic Reform
李克强
Li Keqiang
党的十八届三中全会对全面深化改革作出了战略部署。经济体制改革是全面深化改革的重点，核心问题是处理好政府和市场的关系，使市场在资源配置中起决定性作用和更好发挥政府作用。我们要立足于我国长期处于社会主义初级阶段这个最大实际，坚持社会主义市场经济改革方向，充分认识深化经济体制改革的重要性和紧迫性，深刻理解其科学内涵和本质要求，扎实有力地做好各项改革工作，发挥经济体制改革牵引作用，协同推进其他领域改革，形成强大的改革合力。
Last year, the Third Plenary Session of the Eighteenth Central Committee of the Communist Party of China (CPC) laid out strategic plans for the comprehensive deepening of reform in China. According to these plans, the emphasis of our efforts to comprehensively deepen reform will be placed on economic reform, wherein our core task will be to properly balance the relationship between the government and the market, so that the market can play the decisive role in the allocation of resources and the government can exert its role more effectively. Bearing in mind the fundamental reality that China is still in the primary stage of socialism, and will continue to be so for a considerable period of time to come, it is essential that we carry on orienting our reforms towards the socialist market economy, that we fully appreciate the importance and urgency of deepening economic reform, that we gain penetrating insight into the scientific connotations and inherent requirements of economic reform, and that we carry out our various reform initiatives in a solid and determined fashion. By making full use of economic reform as a driving force, we will promote the coordinated progression of reforms in various other areas, thereby generating strong synergy in reform.
一、发展要紧紧依靠改革
I. Development must come through reform
我国的基本国情，决定了发展仍是解决我国所有问题的关键，必须坚持以经济建设为中心，推动经济社会持续健康发展。实践表明，发展要靠改革。
China’s basic national conditions dictate that development still holds the key to solving all of China’s problems. Based on this realization, we must continue to regard economic development as our central task and make efforts to promote China’s sound and sustainable economic and social development. Fact has demonstrated that in order to achieve development, we must rely on reform.
过去36年，我国经济社会发展取得举世瞩目的成就，靠的就是改革。我国经济总量从世界第十位跃居第二位，从低收入经济体进入中高收入经济体行列，综合国力明显增强，国际地位显著提高。回首36年的改革历程，我们坚持解放思想、实事求是、与时俱进、求真务实，不断破除计划经济体制束缚，逐步建立和完善社会主义市场经济体制，推动经济社会持续向前发展。一路走来，基本场景是：当发展面临体制障碍难以前行、“山重水复疑无路”时，通过改革扫除障碍、增添动力，就会“柳暗花明又一村”。有人说，中国的改革开放是逼出来的，这个说法有一定道理。改革开放初期，安徽凤阳农民在全国率先搞大包干，就是因贫困和饥饿所迫。人还是那些人，地还是那些地，体制一改就大变样，温饱问题迅速得到解决。我们党尊重群众首创精神，及时在全国农村推开这项改革，随后又在城市和其他领域进行改革，极大地解放和发展了社会生产力，极大地改善和提高了人民生活。实践证明，只要紧紧依靠改革，坚持破除不合理的体制机制障碍，不断释放改革红利，就能激发人民群众中蕴藏的无限创造活力，勤劳智慧的中国人民就能创造巨大的社会财富，持续推动我国经济社会发展。
Over the last 36 years, it has been reform that has allowed China to make achievements in economic and social development that have captivated the world. In this time, China has risen from the tenth largest economy in the world to the second largest; it has gone from being a low-income economy to an upper-middle income one; and it has witnessed remarkable enhancements in both its overall national strength and international standing. With a commitment to freeing our minds, seeking truth from facts, advancing with the times, and acting in a realistic and pragmatic manner, we have continually dismantled the constraints of the planned economy, gradually established and developed a socialist market economy, and promoted the sustained development of our economy and society during 36 years of reform. This journey can be described as a constant process of encountering and overcoming obstacles. Whenever we have come up against an unassailable institutional barrier – a “river” that cannot be crossed or a “mountain” that cannot be scaled – we have cleared the path in front of us and injected ourselves with new vigor through reform, revealing a new path when there was seemingly no way forwards. Some have said that China’s reform and opening up drive has been forced by necessity, and I believe that there is some truth in such an assertion. At the beginning of the reform and opening up drive, a group of farmers in Fengyang County, Anhui Province, agreed amongst themselves to split collective farmland on a per household basis, something that had never been done before. We may say that they were forced to do so by poverty and hunger. This one change to the system had a huge effect: with the same number of people and the same amount of farmland, the problem of hunger was quickly resolved. Showing respect for the public’s creativeness, the CPC quickly implemented similar reforms in rural areas throughout the entire country. This was followed by reforms in cities and other areas of the economy, which were hugely effective in liberating and developing China’s productive forces and which brought about major improvements to the people’s standards of living. These experiences have shown us that by relying on reform, resolutely tearing down the obstacles posed by irrational systems and mechanisms, and working constantly to release the dividends of reform, we will be able to unleash the limitless creativity that lies locked within our people. If we succeed in doing that, the industrious and intelligent Chinese people will be able to create enormous amounts of social wealth, and our country’s economic and social development will have the impetus to go on.
过去的一年，我们应对复杂局面、实现良好开局，靠的也是改革。去年，面对国内外形势错综复杂、经济下行压力加大、多重矛盾相互交织的严峻局面，我国经济不仅避免了“硬着陆”，而且保持了稳中向好的态势，增长平稳、就业扩大、物价较低、收入提高，既好于预期，在国际上也很抢眼。取得这样的成绩，很重要的因素是靠改革。
Over the past year, it has been reform that has allowed us to get the work of the new government off to a good start against the backdrop of complex circumstances. Last year, in the face of complex domestic and international situations, mounting downward pressure on economic growth, and numerous intertwined challenges, the Chinese economy not only averted a “hard landing,” but also began to show a trend of improvement amidst stability, demonstrating steady growth, increased employment, moderate price increases, and higher incomes. In addition to exceeding our own expectations, this stood out as a strong performance internationally. One of the most important factors contributing to this performance was reform.
我们大力推进以简政放权为重点的各项改革。分批取消和下放416项行政审批等事项，改革工商登记制度，扩大营改增试点，全面放开贷款利率管制，推进铁路投融资体制改革，设立中国上海自由贸易试验区等。通过这一系列改革举措，特别是向市场、向社会放权，激发了社会投资和创业热情，增强了市场主体发展信心。简政放权、激发市场活力，是实现去年经济稳中向好的关键一招。
We engaged in major efforts to promote a range of reforms, particularly those involving the streamlining of administration and the scaling back of administrative power. Reform measures we took last year included the successive cancelation and delegation of 416 items previously subject to State Council approval; the revamping of the registration system for industry and commerce; the expansion of trials to replace business tax with value-added tax (VAT); the complete lifting of interest rate controls on loans; the revamping of the investment and financing system for railway construction; and the establishment of the China (Shanghai) Pilot Free Trade Zone. Through these reform initiatives, and particularly by placing power in the hands of the market and the non-government sector, we were able to encourage investment and business startups in the non-government sector and boost the confidence of market entities. The streamlining of administration and the scaling back of administrative power to stimulate the vitality of the market was the key to achieving the steady improvement of our economy last year.
我们积极创新宏观调控方式。根据去年年初提出的预期目标，明确经济运行合理区间，确定了稳增长、保就业的下限和防通胀的上限。只要经济运行处于这个区间，就着力促改革、调结构，增强发展内生动力。面对复杂多变的经济运行态势，我们保持定力，不随波动频繁的市场起舞，不因莫衷一是的声音变调，坚持不扩大财政赤字，既不放松也不收紧银根，即使货币市场出现短期波动，也沉着应对。资金紧张怎么办？我们千方百计盘活财政、货币资金存量，整合专项转移支付，压减机关事业单位一般性支出，扩大信贷资产证券化试点，最大限度挖掘资金潜力。同时，想方设法用好资金增量，优化财政支出和信贷资金结构，集中用于经济发展的关键环节和改善民生的重点领域，结果没有多花钱却多办了事，还办成了一些大事。
We actively adopted innovative approaches in macro-control. In line with the targets we set for ourselves at the beginning of last year, we clearly defined acceptable parameters for the operation of our economy in 2013, identifying a minimum acceptable level for economic growth and job creation on the one hand and a maximum acceptable level for inflation on the other. Provided that our economy remained within these parameters, we would focus our efforts on promoting reform, restructuring the economy, and boosting our capacity for endogenous growth. In the face of an extremely complicated and unpredictable economic situation, we resolved to stand firm and hold our ground, neither allowing ourselves to be carried away by a constantly fluctuating market, nor shifting our policies to suit different opinions. We were determined not to expand our fiscal deficit, and we resolved to neither loosen nor tighten our monetary policy. Even when we encountered short-term fluctuations in the money market, our response was calm and collected. But how did we respond to funding shortages? To overcome this problem, we did everything in our power to bring idle fiscal funds and monetary funds into play; we consolidated transfer payments and held down the general budgetary expenditure of government agencies and government-affiliated institutions; and we expanded the scope of trials for the securitization of credit assets. By doing so, we were able to tap the full potential of the funds available to us. At the same time, we explored numerous ways of utilizing additional funds that were newly created. By optimizing the structure of our fiscal spending and credit funds, we were able to channel funding towards areas that were crucial to securing economic growth and improving the wellbeing of the public. As a result, not only were we able to achieve more without spending more, but we even managed to undertake some major initiatives.
我们着力依靠改革实施结构调整。从优化供给和改善需求两侧精准发力，主要运用市场化办法并辅之以差别化政策，有扶有控、有保有压、有进有退，既大力支持服务业和新兴产业发展，促进传统产业改造升级，积极化解部分行业产能严重过剩矛盾，又加大棚户区改造、中西部铁路建设、城市基础设施等薄弱环节投资。结构调整步伐加快，特别是需求结构、产业结构、城乡结构、区域结构等发生了可喜变化。消费对国内生产总值的贡献率达到50%，同比提高4.1个百分点；服务业占比达到46.1%，首次超过第二产业；粮食产量超过1.2万亿斤，实现“十连增”；中西部地区生产总值增速快于东部地区；农村居民收入增幅继续超过城镇居民，城乡收入差距进一步缩小。这既拉动了当期增长，又为长期发展铺路搭桥。
We devoted major efforts to carrying out economic restructuring through reform. In a precision effort to optimize supply on the one side of the equation whilst improving demand on the other, we drew primarily on market forces backed by differentiated policies to support, guarantee, and advance certain sectors while controlling, scaling back, and withdrawing others. On the one hand, we engaged in major efforts to support the development of the service sector and emerging industries; promoted the transformation and upgrading of traditional industries; and worked actively to address the problem of serious excess production capacity in certain industries. On the other hand, we stepped up government investment in weak areas such as urban renewal, railway construction in central and western China, and urban infrastructure development. As a result of these efforts, the pace of our economic restructuring has picked up, and particularly pleasing developments have been seen in our demand, industrial, urban-rural, and regional structures. In 2013, consumption was responsible for 50% of China’s GDP, up 4.1 percentage points from the previous year; the service sector accounted for 46.1% of our GDP, surpassing the secondary industry for the first time; and grain output exceeded 600 million metric tons, increasing for the tenth consecutive year. At the same time, the economic growth of China’s central and western regions outpaced that of its eastern region, and rural incomes continued to grow at a faster rate than urban ones, signaling the further reduction of the urban-rural income gap. The initiatives we have taken in restructuring are not only driving our growth at present, but will also pave the way for development in the long term.
人无远虑，必有近忧。现在回过头看，如果不是用改革的办法，即简政放权、创新宏观调控方式、着力调整结构“三管齐下”，而是采取短期刺激政策，不仅去年的结果可能会大不一样，而且今后几年的日子也许会更难过。靠改革创新，既解决当前突出问题，又为长远发展奠定基础，这是去年实践给我们的深刻启示。
Failing to plan for the long term will inevitably bring about trouble in the short term. Looking back now, if we had opted for short-term stimulus policies instead of turning to reform, that is, our three-way approach of streamlining administration and scaling back administrative power, adopting innovative approaches in macro-control, and carrying out economic restructuring, it is likely that last year would have played out very differently. Moreover, we would probably have created many difficulties for ourselves in the years ahead. Last year taught us that reform and innovation not only allow us to address the striking problems that we face in the short term, but also enable us to lay down a foundation for long-term development.
今后实现经济持续健康发展，仍然要靠改革。我国发展仍处于可以大有作为的重要战略机遇期，新型工业化、信息化、城镇化、农业现代化深入推进，区域发展回旋余地很大，今后一个时期保持经济中高速增长是有潜力、有基础的。但也要看到，我国经济发展已进入结构调整阵痛期、增长速度换挡期，到了爬坡过坎的紧要关口。不深化改革，发展就难有活力、难以持续，甚至可能陷入“中等收入陷阱”。我们要坚定不移推进改革，坚决破除体制机制弊端，进一步解放和发展生产力，把千千万万群众的积极性和创造性调动起来，让潜在的发展优势充分显现，推动经济发展行稳致远。
To achieve sustained and healthy economic development in the future, we must continue to rely on reform. China is still in the midst of an important period of strategic opportunity in which it may achieve a great deal. With the continued progression of new models of industrialization, IT application, urbanization, and agricultural modernization, we will find ourselves with ample space for development across different regions of China. This means that we have both the potential and the foundations to maintain a medium-high rate of economic growth for a period of time to come. However, we also need to be aware that China has entered a painful phase of economic restructuring, and a phase in which the country’s economic growth is undergoing a change of gear. In other words, we have come to a critical uphill stretch in our development. If we do not deepen reform, we will lose the momentum to keep on developing, and we may even risk falling into the “middle-income trap.” Therefore, we must advance reform with unbreakable resolve, resolutely remove the defects that are present in our systems and mechanisms, and promote the further liberation and development of productive forces. We must unleash the creativity and enthusiasm of millions upon millions of people, give full expression to our hidden strengths, and promote the steady development of our economy for years to come.
处理好改革与发展速度的关系非常重要。推进改革需要相应的经济环境，从实际情况看，速度过高或过低都不利于改革。如果发展速度过低，就业会出问题，居民收入增速及民生改善步伐也会相应放缓，老百姓就会不满意，改革就难以推进。但发展速度高了，会使各方面的关系绷得很紧，容易引发通胀，妨碍结构调整，也会影响改革。我们要坚决纠正单纯以经济增长速度评定政绩的偏向，保持合理的、没水分、有质量、有效益、有利于保护环境的经济增长。改革是发展的动力，总体有利于经济增长。今后，我们要更好地把改革与发展结合起来，使之相辅相成、相互促进、相得益彰。
It is extremely important that we correctly balance the relationship between reform and the pace of economic growth. The right economic conditions are required before reform can be advanced. According to our experience, conditions for reform are not ideal when economic growth is too fast or too slow. When economic growth is too slow, employment inevitably becomes a problem. The corresponding slowdown in the growth of incomes and the improvement of public wellbeing becomes the cause of public dissatisfaction, which in turn becomes an obstacle to the progression of reform. When economic growth is too fast, however, various economic relationships become overstretched. This overly rapid growth gives rise to inflation, becomes an obstacle to economic restructuring, and even hinders reform. This is the reason why we must take resolute steps to rectify the tendency to gauge government performance solely on the basis of growth speed. Rather than pursue speed alone, we must strive to maintain genuine growth that is reasonably paced, high in quality and efficiency, and of benefit to our initiatives in environmental protection. Reform may be regarded as a driving force for development, being mostly conducive to economic growth. For this reason, we need to better link reform and development in the future, ensuring that the two are able to support, complement, and mutually reinforce each other.
二、改革要有勇气和智慧
II. Reform requires both courage and wisdom
现在改革进入攻坚期和深水区，需要改的多是重大问题和敏感问题，不少触及深层次社会矛盾，涉及利益关系调整，是难啃的硬骨头，有些多年一直想改但改不动。同时，国内外环境也发生了深刻变化，许多矛盾相互交织，各种诉求相互碰撞。改革的机遇前所未有，改革的复杂性、艰巨性和风险挑战也前所未有。面对这种情况，应该怎么办？我们别无选择。因为现在遇到的深层次矛盾和问题，已成为经济社会发展的“拦路虎”，躲不开、绕不过、拖不得，不改没有出路，慢了会贻误时机，付出的代价将更大。我们必须以强烈的历史使命感和责任感，以壮士断腕的决心和勇气，坚定不移地推进改革。对不合理的既得利益，该调整的要坚决调整，该破除的要坚决破除，不能畏首畏尾。要讲究策略和方法，审时度势、通权达变、相机而动，牢牢把握主动权，打好改革攻坚战。
Now that we have entered the “deep-end” of reform, a stage in which we must tackle many difficult challenges, most of the reforms that we are left with can be described as major and highly sensitive issues. Many of these issues touch on deep-seated social problems, and resolving them will inevitably require adjustments to the current balance of interests. As extremely tough issues to tackle, some of these reforms have already been stalled for a number of years, despite our intentions to press ahead with them. At the same time, profound changes have taken place in the domestic and international environments, with numerous problems becoming intertwined as different demands collide with one another. We may say that the opportunities for reform are unprecedented, but it is also true that the complexity, difficulty, risks, and challenges of reform are unprecedented, too. Then, how should we respond to such a situation? The fact of the matter is that we have no choice. This is because the deep-seated problems we are now encountering are already posing a formidable obstacle to our economic and social development, and this obstacle cannot be evaded, circumnavigated, or ignored. If we do not implement reform, we will have no way of moving forwards; and if we are slow to act on reform, we will miss an important window of opportunity, and the price we pay in the future will be greater as a result. Therefore, with a keen awareness of our historical mission and responsibility, we must advance reform with the determination and courage to take the knife to our own flesh where necessary. Where we encounter illegitimate vested interests, we must act resolutely and without misgiving to rebalance them or root them out as necessary. Moreover, we must employ calculated strategies and approaches, read the situation as it develops, adapt to changes, wait for the right moment to act, and seize the initiative firmly in our own hands, so as to mount a successful reform campaign.
改革要同心勠力。上下同欲者胜。大家都知道汉代名将韩信背水一战的故事。当时韩信受命进击赵国，带着一支缺乏训练的队伍，面对的是十几倍于己的强敌。为激励士气，韩信背河布阵，不留后路，使得人自为战，以一当十，最后取得大捷。这个故事说明，只有上下同心，敢拼才会赢。我们推进改革，也必须上下同心，关键是各级领导干部率先垂范、以上率下。喊破嗓子不如甩开膀子、做出样子。领导有决心，群众才有信心。各级领导干部必须以舍我其谁的担当精神、时不我待的责任意识、敢为人先的创新勇气，去谋划和推动改革。同时，要把改革的重要性、紧迫性向群众讲清楚，使大家真正认识到，这场攸关国家前途和命运的改革，与每个社会成员都休戚相关，从而使改革拥有最广泛、最深厚的社会基础。只要人民群众理解改革、支持改革、投身改革，改革就能有效推进、取得成功。
Reform requires concerted efforts. We have a saying that those who share a common desire are sure to be victorious. We are all familiar with the story of how Han Xin, the great Han Dynasty general, inspired his soldiers to fight with extra ferocity by intentionally cutting their escape route and leaving them with no choice but to fight. At that time, Han Xin had been ordered to attack the state of Zhao. But his poorly trained troops were no match for a strong enemy that outnumbered them by more than ten-to-one. To encourage his soldiers to fight to the death, Han Xin formed his ranks on the bank of a river, leaving no escape route. With no choice but to fight for their own lives, each of Han Xin’s soldiers fought with the ferocity of ten enemy soldiers. In the end, Han Xin’s army scored a major victory against the army of Zhao. This story tells us that victory will be within our reach as long as we share the same purpose and have the courage to fight. Therefore, in advancing reform, it is essential that we share a common purpose. Most importantly, leading officials at all levels are required to set an example for everybody else to follow. Talking the talk is much less desirable than walking the walk, as the people will have faith only when the leaders have resolve. Therefore, leading officials at all levels must plan and promote reform with the initiative to take charge, the sense of responsibility to seize the moment, and the courage to innovate and do what nobody else has done before. At the same time, leading officials must make the importance and urgency of reform known to the public, enabling everyone to truly understand that reform, an issue that has a bearing on China’s future and its destiny, is closely related to each and every member of society. This will help us to ensure that reform is underpinned by the widest and deepest possible social foundation. As long as the people understand, support, and devote themselves to reform, there is no doubt that we will be able to advance reform effectively and successfully.
改革要善谋善为。一个重要方面就是要坚持加强顶层设计与摸着石头过河相结合。改革到了现在这个阶段，确实需要顶层设计，以确保改革的正确方向，在重大关系和关键环节上不出大的问题。经过多年的探索实践，我们积累了较为丰富的改革经验，具备了做好顶层设计的条件。要从战略全局出发，精心进行顶层设计和整体谋划，做好不同改革措施的相互配套与衔接，全面协调推进改革。但也要看到，仅仅有顶层设计是不够的，因为中国地域广袤，各地情况千差万别，现阶段的改革又非常复杂，许多情况事先难以预料，需要摸着石头过河，以探索路径、积累经验。对那些必须取得突破但一时还把握不准的重大改革，要鼓励和支持一些具备条件的地方先行先试，或者在改革试验区进行探索。成功了就及时推广，出现问题就及时纠错，把风险和影响控制在局部范围。这样做，是积极而又稳妥推进改革顺利实施的有效方法。只有走得稳，才能走得快、走得好。我们要坚持试点先行、逐步推广，通过渐进式、累积式改革，集腋成裘、积微成著，赢得最终的成功。
Reform requires sound planning and execution. An important aspect of sound planning and execution will be maintaining a combined approach of strengthening top-level design and “feeling out the stones to cross the river.” At our current stage of reform, it is indeed true that we must engage in top-level design to ensure that reform proceeds in the right direction and that major errors are not made in key and critical areas. Having gained substantial experience through our initiatives and explorations in reform over the years, we are now in a good position to engage in top-level design. With the overall strategic picture in mind, we must meticulously carry out top-level design and overall planning, advancing reform in a comprehensive and integrated fashion by matching and linking various different reform initiatives. However, we also need to be aware that top-level design alone is not enough. This is due not only to China’s sheer size and its huge regional variation, but also to the inherent complexity of a phase of reform in which so many things are difficult to predict in advance. For this reason, we must “feel out the stones to cross the river,” building up experience as we plot the route ahead. In the case of major reforms where breakthroughs are needed but we are unsure on how to proceed for this moment, we should encourage localities with the right conditions to engage in preliminary trials, or engage in explorations in our experimental reform zones. Where successful, these reform trials should be promptly replicated on a wider scale; where problems occur, remedial action should be promptly taken to limit the resulting risks and impacts to a local scale. This constitutes an effective means of advancing reform in an active yet prudent manner. In other words, we must be able to walk steadily before we can expect to walk quickly and gracefully. Therefore, it is important that we remain committed to engaging in trials and replicating successful practices gradually; to carrying out reform in a progressive and incremental fashion; and to piecing together small initiatives into major undertakings, so as to ultimately achieve success in reform.
三、改革要让人民群众受益
III. Reform must benefit the people
全面深化改革要以促进社会公平正义、增进人民福祉为出发点和落脚点。这是中国特色社会主义本质要求所决定，是我们党和政府的宗旨与性质所决定，也是决定改革成败的关键。如果人民群众不能从改革中受益，这样的改革就没有意义，也不会得到人民拥护。让人民群众受益，就是要促进权利公平、机会公平、规则公平，使发展成果更多更公平惠及全体人民。
In setting out to comprehensively deepen reform, we must regard promoting social equity and justice and improving the people’s wellbeing as the fundamental purpose of our initiatives. This purpose is dictated by the inherent requirements of socialism with Chinese characteristics and by the tenets and nature of the Party and the government. It is the key to whether our reforms succeed or fail. Reforms that do not allow the people to benefit are meaningless, and they will not be supported by the people. When we speak of allowing the people to benefit, what we are saying is that we must promote equal rights, equal opportunities, and fair rules, so that all people can benefit more fairly and more thoroughly from the fruits of development.
我们以往的改革能以燎原之势铺开、一步一步深入推进，根本原因就在于给人民带来实实在在的利益、带来了公平参与和发展的机会，得到了广大人民的拥护。去年以来，很多领域的改革能够顺利推进、取得成效，也是这个道理。今后改革的环境条件和重点任务会变，但让人民群众受益的要求不会变，也不能变。改革是最大的动力，也是最大的红利。我们要建立公平有效的体制机制，使改革的红利、发展的成果让人民群众共享。现在利益分配确实还有很多不合理的地方，必须进行调整。但调整利益不能只以静态的观点、在既有利益格局下切“蛋糕”，更要用动态的、发展的眼光，着眼于增量利益，在做大“蛋糕”的同时分好“蛋糕”。即使是既有利益格局调整，也不能简单地搞平均主义那一套。首先要把贫困人群和低收入者的利益保障好维护好，让他们在改革中获得更多的发展机会；要让中等收入阶层逐步扩大，使他们拥有更大的发展空间；还要保护高收入者的合法利益，为他们放开手脚、投资兴业创造更好的发展环境。要使不同社会群体各展其能、各得其所，让一切劳动、知识、技术、管理、资本的活力竞相迸发，让一切创造社会财富的源泉充分涌流，从而形成一个各阶层各方面广泛参与和支持改革的局面。现在我国人均GDP近6800美元，改革和发展的路子走对了，到2020年就会超过1万美元，以后还会更多。我们通过发展、通过增量来理顺利益关系、优化利益格局的余地很大，让人民群众普遍受益的空间也很大。
In the past, our reforms were able to spread like wildfire, going deeper and deeper one step at a time. Fundamentally speaking, this was possible because they presented the people with very tangible benefits, and because they brought opportunities for equal participation and development, which allowed them to win the widespread support of the people. The same may be said of the reform initiatives that we have been carrying out in various areas since last year, which have progressed smoothly and yielded sound results. While the external conditions and focal points of our reforms will change in the future, their purpose of benefiting the people will not and cannot change. Reform not only represents our most important source of impetus for development; it is also our single greatest dividend contributor. By establishing fair and effective systems and mechanisms, we will ensure that the dividends of reform and the fruits of development are shared among the people. Admittedly, there are still numerous irrationalities in the way that interests are distributed in China, and adjustments must be made in this regard. However, we cannot view this balance of interests in static terms alone, simply redistributing the “pie” we already have within the existing framework of interests; rather, we need to adopt a dynamic and developmental approach, placing our focus on creating more and making the “pie” bigger whilst trying to divide it more fairly. Even when we are making adjustments to the existing balance of interests, we cannot simply adopt the egalitarian approach of dividing everything out evenly. Firstly, we need to safeguard the interests of impoverished and low-income groups, allowing them to obtain more opportunities from reform; secondly, we must facilitate the gradual expansion of middle-income earners, giving them more space in which to develop; and thirdly, we need to protect the legitimate interests of high-income earners, providing them with a better environment for development, one in which they are given free rein to invest and launch business ventures. We must allow each group in our society to tap their full potential and find their rightful place; unleash the vitality of all labor, knowledge, technology, managerial expertise, and capital; and give full play to all sources of social wealth. By doing so, we will be able to bring about a situation in which all social strata and all interested parties participate widely in and support reform. China’s GDP per capita is currently almost US$ 6,800. With the right approach to reform and development, it will exceed US$ 10,000 by the year 2020, and will continue to grow after that. With development and growth, there is still a great deal we can do to straighten out and optimize the balance of interests. Accordingly, there is still a great deal we can do to universally benefit the people.
四、加快转变政府职能
IV. The transformation of government functions must be accelerated
我国经济社会发展的诸多问题都与政府职能和管理方式密切相关。政府职能不转变，其他方面的改革就难以推动。政府是改革的组织者、推动者，也是改革的对象，必须对自身进行改革。如果政府安于现状不想改、畏首畏尾不敢改、左右观望等待改，自身就会成为改革的障碍。去年本届政府开门办的第一件大事就是加快转变职能，简政放权、放管结合，这实质是政府的自我革命。今后要继续推进政府职能转变，完善管理体制和运行机制，理顺政府和市场、政府和社会、中央和地方的关系，逐步建立各级政府的权力清单制度，推动政府全面正确地履行职能，建设法治政府、创新政府、廉洁政府。
Many of China’s problems in economic and social development are closely related to the role that the government plays and the mode of management that it adopts. Without adjusting the functions of the government, it will be difficult to promote reform in other areas. In addition to being the organizer and implementer of reform, the government is also an object of reform, and must therefore introduce reforms that are targeted towards itself. A government that is content with the status quo, that has too many misgivings about reform, and that is overly hesitant to carry out reform will end up becoming an actual obstacle to reform. When this government came into office last year, the first task we set ourselves was to accelerate the transformation of government functions, to be achieved by streamlining administration, scaling back power, loosening restrictions, and strengthening regulation. In essence, this can be regarded as an attempt by the government to reform itself. Going forwards, we must continue to promote the transformation of government functions, refine management systems and operation mechanisms, and straighten out the relationships between the government and the market, between the government sector and the non-government sector, and between the central government and local governments. By gradually defining the powers of each level of government in the form of a list of powers and ensuring that the government performs its duties correctly and in full, we will build a clean and innovative government that conducts itself in accordance with the law.
第一，继续取消和下放行政审批事项。本届政府已经承诺，任期内把行政审批事项减少1/3以上，要确保完成。首先要把取消的文章做足、做到位，最大限度地放权给市场。对非行政许可审批事项要进行全面清理，该取消的一律取消；确需保留的，要依法调整为行政许可，今后不再搞非行政许可审批。要全面推进工商登记制度改革，由先证后照改为先照后证，将注册资本由实缴登记制改为认缴登记制，由企业年检制度改为年报公示制度，努力为企业经营和公民投资创业提供便利。
First, we must continue to cancel and delegate items subject to government approval. This government has promised to cut the number of items subject to government approval by more than 1/3 during its tenure, and we must ensure that this target is met. First and foremost, we must aim to do a thorough job in the cancellation of items subject to government approval, so as to place power in the hands of the market wherever possible. This requires that we conduct a thorough review of all approval items that are not stipulated in law, cancelling all items that are deemed unnecessary. In cases where government approval is deemed necessary, the items in question need to be lawfully readjusted as government approval items. In the future, items that are not stipulated in law will no longer require government approval. In addition, we need to carry on advancing the comprehensive reform of the registration system for industry and commerce. In an effort to better facilitate companies in doing business and citizens in launching their own business ventures, we will adopt a series of new reform measures. These will include reversing the relationship between business licenses and administrative permits, so that companies are able to obtain a business license before receiving an administrative permit for their area of business; revamping our registered capital system to replace the capital paid-in system with a capital subscription system; and cancelling annual inspections of companies in favor of annual disclosures.
第二，保留的审批事项一律向社会公开。政务公开是行政审批制度改革的助推器，是约束审批行为的紧箍咒。各部门还在实施的审批事项，要尽快公布目录清单。除此之外，一律不得实施行政审批，更不得设立新的审批事项。这实际上是向负面清单管理方式转变。政府以清单方式明确列出禁止和限制的范围，清单之外，“法无禁止即可为”，企业只要按法定程序注册登记，即可开展投资和经营活动。
Second, all items that remain subject to government review and approval must be disclosed to the public. The public disclosure of government affairs will have the combined effects of boosting the reform of the government approval system and constraining the review and approval activities of the government. All departments will be required to promptly make public a full list of all items still subject to their approval, and will not be permitted to impose government reviews on any item not found on that list. More importantly, government departments will not be permitted to establish any new items for review and approval. In fact, this represents a transition to a mode of management that is based around a negative list. In other words, the government will produce a clear list of all activities that are prohibited or restricted, and any item not found on that list will be deemed permissible by default. To invest and do business in these permitted areas, companies will simply be required to go through the legally prescribed registration formalities.
第三，加强和改进监管。简政放权，绝不是一放了之，必须在放权的同时加强市场监管。要进一步强化事中事后监管、完善监管体系的具体措施。地方政府在职能转变和机构改革过程中，要把加强监管作为重中之重，建立横向到边、纵向到底的监管网络和科学有效的监管机制。现在往往是平时监管不及时、不到位，一出问题就搞“突击”，搞“大检查”，结果是雨过地皮湿，监管一定要制度化、规范化、常态化。要抓紧建立科学的抽查制度、责任追溯制度、经营异常名录和黑名单制度，对违法违规者，要严厉惩处，以儆效尤。
Third, we need to strengthen and improve government regulation. By no means does streamlining administration and scaling back administrative power mean that we will leave the market entirely to its own devices. As we are placing power in the hands of the market, it is also essential that we step up government regulation of market activities. Specifically, we need to further enhance our ongoing and ex post regulation and further refine the concrete measures that we adopt in our regulatory activities. During the transformation of government functions and the reform of government organizations, local governments are required to identify the enhancement of market regulation as their number one priority, establish a regulatory network with the sufficient reach and depth, and develop scientific and effective mechanisms for regulation. It is often the case that local governments are lax in their regulatory activities until something goes wrong, when their typical response is to implement a “crackdown” or a “large-scale inspection.” The problem is the underlying issues are never properly resolved. Therefore, it is essential that we institutionalize, standardize, and normalize the regulatory activities of the government. In doing so, we must work quickly to establish effective systems pertaining to the carrying out of spot-checks, the assignment of liability, and the formulation of a register of abnormal business activities and the establishment of a black list. By dealing out stern punishments to wrongdoers, we will make an example of those who act in violation of laws and regulations.
五、深化财税体制改革
V. The reform of our fiscal and taxation system needs to be deepened
科学的财税体制是优化资源配置、维护市场统一、促进社会公平、实现国家长治久安的制度保障。现行的财税体制是在1994年分税制改革的基础上逐步完善形成的。这些年来，财政收入大幅增长，政府的调控能力显著增强。但随着形势发展变化，现行财税体制不适应、不完善的问题日益凸显，必须进行改革。
A sound fiscal and taxation system is an institutional necessity if we are to optimize the allocation of resources, safeguard a unified market, promote social fairness, and ensure the enduring peace and stability of the country. China’s current fiscal and taxation system was gradually developed on the basis of the fiscal and taxation reforms that we carried out in 1994, which saw the introduction of a system for the sharing of fiscal revenue between the central government and local governments. In recent years, fiscal revenues have increased by a considerable margin, affording the government significantly enhanced capabilities in macro-control. However, as conditions have changed, it has become increasingly evident that our current fiscal and taxation system is no longer suitable and no longer adequate. It is therefore essential that we carry out reform.
一是推进预算公开。政府预算收入取之于民，社会公众有权监督这些钱怎么花、花到哪、效果如何。长期以来，我国财政资金存在使用不规范、效率不高和资金沉淀等问题，部分地方政府举债行为也缺乏约束，这些与预算透明度不够、监督检查乏力是分不开的。要进一步加大预算公开力度。一要扩大预算公开范围。各级政府预算和决算都要向社会公开，所有财政拨款的“三公”经费更要公开。除公共预算外，政府性基金预算、国有资本经营预算、社会保险基金预算要进一步向社会公开。各级财政转移支付项目也要逐步公开透明。二要细化公开内容。部门预算基本支出和项目支出要尽快公开。完善政府收支预算科目体系，明确公开项目，做到科目粗细有度、表述清晰明了，让老百姓能看懂、社会能监督。三要强化预算公开工作的监督检查，建立预算公开问责机制。通过提高透明度强化监督和约束，使预算编制和执行更加阳光，使财政资金使用更有绩效，减少寻租腐败的机会。
First, we need to promote budget transparency. Given that the government’s revenue comes from the people, the public have the right to monitor how, where, and to what effect this money is spent. For many years, problems such as a lack of uniform standards for the use of fiscal funds, low efficiency in the use of funds, and a tendency for funds to be left idle have been present in China. At the same time, some local governments have not been sufficiently constrained in their debt financing activities. All the above problems are attributable to a lack of budget transparency and insufficient monitoring and inspection. Therefore, it is important that we promote greater budget transparency. These efforts will involve the following aspects. Firstly, we need to expand the scope of budget disclosures to the public. All levels of government will be required to make their budgets and final accounts available to the public, including, above all, all spending on official overseas visits, official vehicles, and official hospitality using public funds. In addition to budgets for public spending, budgets pertaining to government-managed funds, state capital operations, and social insurance funds also need to be further made public. Moreover, in the interests of transparency, transfer payments taking place at all levels will be progressively disclosed to the public. Secondly, we need to make our budget disclosures more detailed. In addition to making public the basic expenditure and project expenditure of departmental budgets at the soonest possible juncture, we need to improve the way that the revenue and expenditure budgets of the government are itemized, making clear which items are to be made public, providing the right level of detail, and setting out budget disclosures clearly so that they can be understood by the public and monitored by society. Thirdly, we need to enhance monitoring and inspection of budget disclosures and establish the relevant accountability mechanisms. Through the above efforts to increase transparency, strengthen monitoring, and enhance constraints, we will make the process of budget preparation and execution more transparent, ensure that fiscal funds are used more effectively, and limit the chances of influence peddling and other forms of corruption.
二是推进税制改革。当前的重点是扩大营改增。这项改革不只是简单的税制转换，更重要的是有利于消除重复征税，减轻企业负担，促进工业转型、服务业发展和商业模式创新。系统考虑，营改增还有五步曲。第一步，2014年继续实行营改增扩大范围；第二步，2015年基本实现营改增全覆盖；第三步，进一步完善增值税税制；第四步，完善增值税中央和地方分配体制；第五步，实行增值税立法。今年要走好第一步，除已经确定的铁路运输和邮政业实行营改增外，还要将电信业等纳入进来。同时，要清费立税，推进消费税、资源税改革，加快环境保护税等立法进程，继续降低小微企业税费负担。
Second, we need to further advance the reform of our taxation system. At present, the focus of our taxation reforms is the replacement of business tax with value-added tax. However, this reform is not a simple matter of switching from one tax form to another; more importantly, it is an opportunity to eliminate instances of double taxation, lighten the burden on businesses, and promote the transformation of our industries, the development of the service sector, and the creation of new business models. Viewed systematically, there are still five steps to be taken in the replacement of business tax with VAT. They are as follows: step one, we will continue with efforts to replace business tax with VAT over a wider scope of sectors in 2014; step two, we will essentially replace business tax with VAT in all sectors in 2015; step three, we will make further refinements to our system of VAT; step four, we will refine systems for the sharing of VAT revenue between the central government and local governments; and step five, we will enact legislation regarding VAT. This year, our efforts need to be devoted to carrying out step one. In addition to railway transportation and postal services, which have already been confirmed for the switch from business tax to VAT, we will bring the telecommunications sector under the coverage of VAT this year. In addition to the above, we need to replace various administrative fees with taxes, advance the reform of excise and resource taxes, and accelerate the pace of legislation on environmental tax, so as to carry on lightening the burden of taxes and fees on small and micro businesses.
三是划分事权和支出责任。长期以来，中央与地方之间、地方各级政府之间，事权和支出责任划分不清晰、不合理、不规范，总体看，中央政府部门管了不少不该管、管不好的事。去年我们启动了黑龙江“两大平原”现代农业综合配套改革试验，一个重要内容就是将中央政府在“三农”方面的审批权下放，各项涉农资金全部直接下拨到省，由地方统筹使用。这项改革取得经验后，不仅要在全国推广，其他方面也要借鉴其做法，把一些不适合中央部门管理的事权与财权下放。当然，中央该加强的事权和支出责任也要加强。要通过改革，健全事权和支出责任相适应的制度，保持现有中央和地方财力格局总体稳定，逐步理顺中央与地方收入划分，使中央与地方各安其位、各负其责、上下协同，促进政府治理整体效能的最大化。
Third, we need to clearly define the powers and spending obligations of different levels of government. For many years, the division of powers and spending obligations between the central government and local governments, and between local governments at different levels, has been unclear, irrational, and unstandardized. Generally speaking, the central government is still performing a number of roles that it need not perform and cannot effectively perform. Last year, we launched comprehensive and coordinated trial reforms for the development of modernized agriculture in the Sanjiang and Songnen plains of Heilongjiang Province. An important aspect of these reforms has been the delegation of the central government’s approval powers with regard to agriculture, rural areas, and farmers. Accordingly, all funding for rural initiatives is now transferred directly to the provincial government for overall management. Once a sufficient amount of experience has been gained, we will not only implement these reforms on a national scale, but also apply them to other areas, thereby delegating responsibilities and financial powers that the central government is not equipped to exercise effectively. Of course, there are cases where the powers and spending obligations of the central government will need to be enhanced. Through the implementation of reform, we need to further develop a system in which powers match spending obligations. While maintaining the overall balance in fiscal revenue between the central government and local governments, we will gradually straighten out the sharing of revenue between the central government and local governments, ensure that the central government and local governments assume their respective roles and responsibilities in a coordinated fashion, and seek to maximize the overall effectiveness of government administration.
六、完善金融市场体系
VI. The financial market needs to be improved
近年来，我国金融业改革和发展取得了明显成效，服务经济发展能力不断增强，但也存在金融机构经营方式总体粗放，农村金融和中小金融机构发展相对滞后，金融体系对实体经济和民生改善支持不够等问题，亟须加大改革力度。金融改革内容非常丰富，今年的重点是做好以下3件事。
We have achieved notable results in the reform and development of our financial sector in recent years, with the capacity of the financial sector to serve the economy having been constantly boosted. However, there are still a number of outstanding issues that must be addressed urgently through reform, such as the generally extensive business modes of financial institutions, the lagging development of rural finance and small and medium-sized financial institutions, and insufficient support from the financial system for the development of the real economy and the improvement of public wellbeing. Financial reforms cover a wide expanse of content. This year, we will focus on completing the following three tasks.
第一，放宽市场准入。金融业虽有其特殊之处，但本质上仍是竞争性行业，同样需要通过竞争促进服务改善，通过市场优化资源配置。要在加强监管前提下，放宽市场准入，允许具备条件的民间资本依法发起设立中小银行等金融机构。这一方面可以增加一些熟悉当地情况、特色鲜明的基层银行，以缓解小微企业、“三农”等融资难、融资贵的问题；另一方面，可以使金融业回归竞争性行业的本来面目，形成一个各种市场主体共同参与竞争的金融生态，为促进实体经济发展提供有力支撑。这项改革，要逐步积累经验，积极稳妥推进。
First, we need to ease market access restrictions. Despite demonstrating certain characteristics that distinguish it from other industries, the financial sector is still in essence a competitive industry. Therefore, like other industries, the improvement of services and the optimization of resource allocation in the financial sector must come through competition and through the market. On the basis of enhancing market regulation, we need to ease market access restrictions by permitting eligible private investors to legally establish financial institutions such as small and medium-sized banks. On the one hand, this will allow for the creation of more specialized local banks that boast ample local knowledge, which in turn will help to make financing cheaper and easier to secure for small and micro businesses, as well as for ventures concerning agriculture, rural areas, and farmers. On the other hand, the easing of market entry restrictions will enable the financial sector to revert back to its true nature as a competitive industry, allowing for the creation of a financial ecosystem which allows various kinds of market entity to engage in competition, and which will serve as a solid foundation underpinning the development of the real economy. In carrying out this reform, we need to build up experience gradually and proceed in an active yet prudent fashion.
第二，推进利率市场化。利率市场化就是将资金价格的决定权交给市场。目前，绝大多数的资金价格都已市场化，无论是股票、债券还是贷款的价格均已放开，只剩下存款利率上限这最后一道关口。实际上，一些金融机构为规避存款利率管制，发行了不少理财产品，一定程度上扩大了市场化定价的范围。要继续推进利率市场化，扩大金融机构自主定价权。需要把握好两点：一是利率市场化是一个系统工程，单兵突进式的改革难以成功，需要与相关方面改革协调推进。二是利率市场化赋予了市场主体更多自主权，金融机构和企业要加快完善公司治理，强化财务硬约束，不能不顾成本，盲目竞争，搞利率大战。
Second, we need to make interest rates more market-based. In subjecting interest rates to market forces, we are in effect giving the market the right to determine the prices of money. At present, money prices are already being determined by market forces in the majority of cases, with restrictions on the cost of shares, bonds, and even loans having been fully lifted. Now, we are only left with the interest rate cap on bank deposits. In fact, in an attempt to evade interest rate restrictions on deposits, some banks have issued a number of financing products which have, to a certain extent, broadened the scope of pricing by the market. Going forwards, we need to proceed with the marketization of interest rates and give financial institutions greater autonomy in pricing. There are two key points that we must grasp in this regard: First, the marketization of interest rates is a systematic undertaking that cannot be achieved through isolated reform initiatives, but must be approached by coordinating various aspects of reform. Second, since the marketization of interest rates provides market entities with greater autonomy, financial institutions and companies will be required to move quickly to improve their corporate governance and enhance their hard budget constraints, so as to ensure that they do not engage in blind competition and interest rate wars with no regard for costs.
第三，建立存款保险制度。存款保险制度是市场经济条件下保护存款人利益的重要措施，是金融安全网的重要组成部分。从各国经验看，建立存款保险制度是发展民营银行、小银行的重要前提和条件。存款保险客观上能增强这些银行的信用，为之创造一个与大银行公平竞争的金融市场环境，从而有利于推动金融业放开市场准入等改革。
Third, we need to establish a deposit insurance system. Deposit insurance represents an important measure for the protection of depositors in a market economy, constituting an integral part of the financial safety net. The past experiences of various countries tell us that the establishment of a deposit insurance system is an important prerequisite and condition for permitting the establishment of private and small banks. Objectively speaking, deposit insurance is able to enhance the trustworthiness of private and small banks, helping to create a financial market environment in which they can compete fairly with big banks. Thus, the introduction of deposit insurance will be conducive to the advancement of reform, and particularly to the relaxation of access restrictions for the financial sector.
金融业是高风险行业，防范风险是金融业的永恒主题。要加强监测预警，做好及时控制风险的预案，但关键还是要通过深化改革开放，在可持续发展中防范系统性风险。
The finance sector is a high-risk industry in which risk prevention is a constant theme. For this reason, it is important that we enhance our capacity to detect and predict risks, and formulate contingency plans that will allow us to respond quickly when risks surface. Despite this, however, our key focus should be the prevention of systemic risks during the course of sustainable development, which must be achieved through the deepening of reform and opening up.
七、构建开放型经济新体制
VII. A new system for an open economy needs to be laid down
现在，我国经济与世界经济高度融合，是120多个国家的第一大贸易伙伴；同时，我们仍处于国际分工和产业链的中低端。当前的外部环境，既有机遇，也有挑战。我们要努力构建开放型经济新体制，以对外开放的主动，赢得经济发展上的主动、国际竞争上的主动。
At present, China has already integrated itself deeply into the global economy, being the largest trading partner of more than 120 nations. However, the fact remains that we are still located towards the middle and the lower end of the international division of labor and industrial chain. The current external environment presents us with opportunity and challenge in equal measure, and it is therefore important that we lay down a new system for our open economy. By taking the initiative to open up further to the outside world, we will strive to gain an edge in both economic development and international competition.
第一，改革涉外投资管理体制。包括改革利用外资和对外投资管理体制。现在我国外汇储备高达3.9万亿美元，为什么还要放宽外商投资准入、利用外资呢？这是因为，利用外资不是简单地引进资金，更重要的是获取先进技术、管理经验、市场机会，这些都不是有钱就能买到的。利用外资是我们的长期方针。目前，我国利用外资仍采取逐案审批加产业指导的管理方式，审批环节多，影响了外资的积极性。为改变这种状况，去年我们有一个重大探索，就是批准设立中国上海自由贸易试验区。实行准入前国民待遇加负面清单的管理方式，只要没有列入负面清单的行业，企业投资都不需要审批。需要强调的是，自贸区不是搞“政策特区”或“税收洼地”，而是要推进政府职能转变，探索创新经济管理模式。下一步要研究扩大自贸区试点，具备条件的地方可以纳入试点范围。
First, we need to revamp our system for the administration of foreign investment. These reforms will involve two aspects: the utilization of foreign investment in China; and the administration of Chinese investment overseas. At present, China’s foreign exchange reserves exceed 3.9 trillion dollars. Why, then, would we seek to ease restrictions on foreign investment and the utilization of foreign investment in China? This is because the introduction of foreign investment is not merely a case of bringing money into the country; more importantly, it is a means of acquiring advanced technologies, managerial expertise, and market opportunities, none of which can be bought. Therefore, we have identified the introduction of foreign investment as a long-term policy. Our current model for the management of foreign investment in China sees the government review each proposed venture individually on the basis of a list of industries permitted for foreign investment. However, these reviews, which involve numerous approval procedures, have dampened the enthusiasm of foreign investors. In a bid to address this situation, we took a major step into new territory last year by approving the establishment of the China (Shanghai) Pilot Free Trade Zone. Accompanying the Shanghai free trade zone is a new model for the management of foreign investment that affords pre-establishment national treatment (PENT) to foreign investors on the basis of a negative list. Under this model, government approval is not required for investment in any industry that does not appear on the negative list. It must be noted that the establishment of this free trade zone does not represent an attempt to create a “special policy zone” or a “taxation lowland”; rather, it is an endeavor to promote the transformation of government functions and explore a new mode of economic management. The next step of our efforts will be to expand the scope of trials for free trade zones and identify eligible localities to participate in trials.
对外投资蓬勃发展，境外经济技术合作规模和区域迅速扩大，是我国新一轮开放型经济发展的显著特征。现在的问题是，我国对外投资管理体制不适应对外投资加快发展的新形势，在投资审批、外汇管理等方面存在诸多制约。要大幅下放对外投资审批权限，建立以备案制为主的境外投资管理体制，确立企业和个人对外投资主体地位，实行谁投资、谁决策、谁受益、谁承担风险。这样做，有利于加快“走出去”步伐，带动我国的产品、技术、标准、服务出口，也有利于促进国内产业升级和国际收支平衡。我们不仅要让中国产品、中国制造走向世界，更要让中国装备、中国创造走向世界、誉满全球。当然，“走出去”不能自相残杀、打乱仗，要加强协调、规范秩序、形成合力。
The vigorous growth of Chinese investment overseas and the rapid expansion of China’s overseas economic and technological cooperation in terms of both scale and regional coverage are notable features of China’s latest round of economic opening up. The problem we are facing at present is that our current system for the administration of outbound investment is unable to cope with the rapid growth of overseas investment that we are now experiencing. In particular, there are a number of constraints with regard to investment approval and foreign exchange management that need to be addressed. In line with the principle that investors make their own decisions and beneficiaries assume their own risks, we need to significantly delegate approval powers for outbound investment, establish a registration-based system for the administration of outbound investment, and identify companies and individuals as the principal entities in outbound investment. These changes will help to boost the pace of our drive to “go global,” stimulating the export of our products, technologies, standards, and services. In addition, they will also be conducive to promoting China’s industrial upgrading and keeping its payments in balance. In addition to promoting the global spread of Chinese goods and Chinese-made commodities, we also need to take Chinese equipment and innovations global and boost their international reputation. Of course, in “going global,” we cannot descend into cut-throat and chaotic clashes amongst ourselves. Rather, we must boost coordination, establish order, and form synergy.
第二，扩大内陆和沿边开放。过去，我国对外开放主要是在沿海地区，内陆和沿边地区对外开放相对滞后。今后扩大开放的最大潜力和回旋余地在中西部地区。要抓紧制定丝绸之路经济带、21世纪海上丝绸之路的相关规划和具体方案，重点推进与周边国家基础设施互联互通，打造孟中印缅、中巴经济走廊，沿线各地要找准定位、密切配合。要大力推动内陆与沿海沿边通关协作，把“关检合作”改革试点扩大到全国，加快提升中西部地区通关效率。
Second, we need to further open up inland and border areas. In the past, China’s opening up primarily took place in the country’s coastal regions, while the opening up of its inland and border areas lagged behind. Looking ahead, China’s largest area of potential for opening up further will be its central and western regions. Therefore, we must work quickly to formulate plans and implementation schemes for the “Silk Road Economic Belt” and “21st Century Maritime Silk Road”; prioritize the interlinking of infrastructure with neighboring countries; and establish two economic corridors, one connecting Bangladesh, China, India and Myanmar and the other connecting China and Pakistan, wherein the localities in question will be required to position themselves well and work together in close coordination. In addition, we must vigorously promote cooperation between inland, coastal, and border areas in customs clearance, begin nationwide trials for cooperation between quality inspection and customs authorities, and quickly increase the efficiency of customs clearance in China’s central and western regions.
第三，坚持多边和自贸区两个轮子一起转。现在世贸组织成员涵盖我国98%以上的对外贸易。多边贸易体系是我国巩固贸易大国地位的“压舱石”。自贸区代表更大范围、更宽领域、更高层次的开放，是我国走向贸易强国的“推进器”。我们要积极参与高标准自贸区建设，推进中美、中欧投资协定谈判，加快与韩国、澳大利亚、海湾合作委员会等自贸区谈判进程，实现与世界各国互利共赢。
Third, we must remain committed to a dual strategy of promoting both multilateral trade and free trade zones. At present, trade with other members of the World Trade Organization (WTO) accounts for more than 98% of China’s foreign trade. Whereas the multilateral trade system is the foundation on which we will consolidate our position as a major trading nation, free trade zones, which represent a greater, broader, and more advanced form of openness, will give us the boost we need to establish ourselves as a leading trading nation. Therefore, we must actively participate in the establishment of high-quality free trade zones, advance China-US and China-Europe bilateral investment treaty negotiations, and accelerate free trade zone negotiations with South Korea, Australia, and the Gulf Cooperation Council, with a view to achieving mutually beneficial cooperation with all countries.
八、注重依靠改革推进结构调整
VIII. A focus needs to be placed on promoting economic restructuring through reform
我国已进入只有调整经济结构、转变发展方式才能持续发展的关键时期。推进结构调整，必须也只能依靠改革，从一定意义上说本身也是改革。我国经济结构不合理问题，症结在于不合理的体制机制导致的资源配置扭曲和僵化。调整经济结构，要从实施结构改革入手，改变不合理的体制机制，让市场在资源配置中起决定性作用，才能釜底抽薪，真正收到成效。否则再用老办法，主要运用行政手段，结果只能是调不动、调得慢、调不好，甚至出现反复，这已经为实践所证明。当前和今后一个时期，推进结构调整，要着力在推进市场化改革上下功夫，使市场在资源配置中起决定性作用和更好发挥政府作用，创新体制机制，加强政策引导，推动发展从粗放型向集约型转变，从国际产业分工中低端向中高端提升，从城乡区域不平衡向均衡协调迈进，实现更有效率、更加公平、更可持续的发展。要在结构调整的各个领域、各个环节，推出有针对性的改革举措和差别化促进政策，使结构调整更多依靠改革创新来驱动。
China has now entered a critical stage of development in which the continuation of economic development will only be possible through economic restructuring and the transformation of the country’s economic growth model. To promote the restructuring of our economy, we must and can only rely on reform. In fact, in a certain sense, relying on reform to achieve economic restructuring is in itself a kind of reform. The problem with China’s economic structure lies in the distorted and rigid allocation of resources as a result of irrational systems and mechanisms. Therefore, in carrying out economic restructuring, our focus must be placed on reforming irrational structures within our economy. Only by reforming irrational systems and mechanisms and allowing the market to play the decisive role in resource allocation will we be able to fundamentally address the problems in our economic structure and gain genuine results in reform. If we continue to rely on old methods, that is, to promote restructuring primarily through administrative means, our economic restructuring is sure to be arduous, slow, and poor in effect, and may even see progress being gained and lost in a repeated fashion. This has already been demonstrated by our experiences in the past. Going forwards, the focus of our efforts to promote economic restructuring must be placed on market-based reform. Specifically, by allowing the market to play the decisive role in the allocation of resources, enabling the government to play its role more effectively, developing new systems and mechanisms, and enhancing policy guidance, we will make the transition from extensive to intensive growth, climb towards the middle and high-end of the international division of labor, and make progress towards achieving balanced development between urban and rural areas and among different regions, so as to realize development that is more efficient, more equitable, and more sustainable. In order to ensure that economic restructuring is driven predominantly by reform and innovation, we should introduce specifically tailored reform measures and differentiated policies for each respective area and aspect of restructuring.
第一，构建扩大内需长效机制。我们要实现持续发展，最大的潜力在内需。要坚持把扩大内需作为经济发展的主要引擎，这也是重大的结构调整。要发挥好消费的基础作用和投资的关键作用，不断增强内需的拉动力。要把促进消费特别是居民消费作为扩大内需的着力点，既要深化收入分配制度改革、多措并举促进城乡居民收入增长、解决没钱花的问题，也要完善社会保障制度、解决有钱不敢花的问题，还要改善消费环境、培育新的消费增长点，解决有钱不愿花、没处花的问题，释放有效需求。要大力促进服务消费发展，鼓励社会力量办医办学办养老等，提供多样化的产品和服务。要推进国内贸易流通体制改革，清除抑制消费的各种不合理规章制度，整顿和规范市场秩序、严厉打击制售假冒伪劣商品行为，建设法制化的营商环境。要支持发展网络销售等新业态，这方面潜力巨大。同时，要继续创新投融资体制机制，推动投资主体多元化，加快实行统一的市场准入制度，进一步释放民间投资潜力，促进固定资产合理增长。
First, we need to establish long-term mechanisms to promote the growth of domestic demand. China’s greatest source of untapped potential for the realization of sustainable development lies in domestic demand. Thus, our commitment to making domestic demand the primary engine for economic growth reflects a major structural readjustment in itself. In a bid to constantly boost domestic demand as a driving force for growth, we need to give full play to the fundamental role of consumption and fully exert the crucial role of investment. We need to make promoting consumption, especially consumer spending, the focus of our efforts to boost domestic demand. In doing so, we should exert ourselves in three areas: first, we must deepen the reform of income distribution and adopt multiple measures to promote the growth of incomes in urban and rural areas, so as to address the lack of disposable income among consumers; second, we must make further improvements to our social safety nets, so as to address the worries that consumers have with regard to spending their disposable income; and third, we must create a better environment for consumption and foster new growth areas in consumption, so as to address the unwillingness of consumers to spend their disposable income and the lack of opportunities to spend. Through these efforts, we will release more effective demand. We need to vigorously promote the development of service-related consumption, encourage non-government investment in health care, education, and care for the elderly, and facilitate the provision of a wider range of products and services. We need to advance the reform of systems for the domestic circulation of goods, abolish various unreasonable regulations and systems that hinder consumption, rectify and standardize market practices, crack down on the production and sale of counterfeit, fake, and shoddy goods, and establish a legally-regulated environment for business. At the same time, we also need to develop new forms of commerce that boast huge potential for development, such as the sale of goods and services over the Internet. In addition to the above, we must continue to develop new and innovative systems and mechanisms for investment and financing, promote greater diversity in investors, and accelerate the implementation of uniform market access requirements, so as to further unleash the potential of non-government investment and promote the reasonable growth of fixed assets.
第二，统筹推进城乡一体化改革。城乡二元结构是不合理经济结构的突出表现和重要根源。改变城乡二元结构，必须建立城乡一体化发展体制机制。为此，要进一步放活农民，放手让农民去闯市场，形成农业现代化和新型城镇化相辅相成的局面。在推进现代农业制度建设方面，主要是坚持和完善农村基本经营制度，加快实施承包地确权登记颁证，鼓励土地经营权流转，发展适度规模经营；完善农产品价格形成机制，启动大豆、棉花目标价格补贴试点；完善农业补贴等政策，促进农业集约化和可持续发展。在推进新型城镇化体制机制建设方面，主要是加快户籍制度改革，出台差别化落户政策；实施流动人口居住证制度，建立与居住年限相挂钩的基本公共服务提供机制；围绕农业转移人口市民化成本分担机制、多元化可持续城镇化的投融资机制等，组织开展新型城镇化改革试点。
Second, we need to promote the integrated development of urban and rural areas under coordinated planning. The dualistic urban-rural structure is both a key manifestation and an important cause of China’s irrational economic structure. In setting out to address the dualistic urban-rural structure, it is essential that we establish a range of systems and mechanisms to facilitate the integrated development of urban and rural areas. In doing so, we need to allow farmers to realize their potential by giving them free rein to enter the market, so as to create a new situation in which the modernization of agriculture and our new type of urbanization complement and reinforce each other. With regard to promoting the development of systems for modern agriculture, we mainly need to take the following steps: first, on the basis of upholding and improving our basic rural operational system, we must accelerate our initiatives to determine, register, and certify rights to contracted farmland, encourage the transfer of the rights to use contracted land, and develop agricultural operations of a moderate scale; second, we need to improve mechanisms for the pricing of farm products, and launch trials for the target price subsidization of soybeans and cotton; and third, we need to improve policies on agricultural subsidies and promote the intensive and sustainable development of agriculture. With regard to promoting the development of systems and mechanisms for a new type of urbanization, we mainly need to take the following steps: first, we need to accelerate the reform of our household registration system and introduce differentiated polices on the integration of rural migrant workers into cities as permanent urban residents; second, we need to introduce residency permits for the floating population and establish mechanisms to tie the provision of basic public services to permit holders’ length of residence; and third, we need to carry out reform trials pertaining to various aspects of our new type of urbanization, such as cost-sharing mechanisms for the integration of rural residents into cities as permanent urban residents and diverse investment and financing mechanisms to support urbanization on a sustainable basis.
第三，探索建立区域均衡发展机制。解决区域发展不平衡问题，既是结构调整的重大任务，也是激发巨大发展潜力的重要途径，关键要建立有效的促进机制。要在实施好西部大开发、东北振兴、中部崛起、东部率先这一区域发展战略部署的基础上，谋划区域发展大棋局，由东向西、由沿海向内地，依托大江大河和陆路交通干线，培育新的区域经济支撑带，形成新的增长极，构建我国梯度发展新格局，促进区域均衡、协调发展。要依托长江建设经济增长新支撑带，同时加快其他新支撑带建设的研究规划。推进长三角地区经济一体化，深化泛珠三角区域经济合作，加强环渤海及京津冀地区协同发展。为此，要着力消除市场分割、地区封锁和行政性垄断，依靠市场力量和区域差别化政策引导，促进统一市场形成，开展公平竞争。建立多元的投融资机制，支持发展跨区域大交通、大流通，构建基础设施互联互通新体系。要针对跨区域、次区域和经济新支撑带发展，提高区域差别化政策的精准性，促进区域基本公共服务均等化。
Third, we need to establish mechanisms to promote balanced regional development. Addressing the problem of imbalanced regional development not only represents one of our major goals in economic restructuring, but also constitutes a major approach to unleashing our huge potential for development. The key to addressing unbalanced regional development lies in the establishment of effective growth-promotion mechanisms. Working on the basis of our existing regional development strategy, which consists of vigorously developing western China, revitalizing the old industrial bases of northeast China, spurring the rise of central China, and supporting the spearhead development of eastern China, we need to plot out an overall layout for China’s regional development that extends from eastern regions to western regions and from coastal regions to inland regions. Specifically, by fostering new regional economic development belts and new growth poles along the routes of major rivers and land transportation arteries, we will establish a new layout for China’s economic development that stretches from east to west in a cascade fashion. This will help us to achieve balanced and coordinated development across different regions. We also need to establish a new economic development belt along the Yangtze River, and accelerate the planning of other new economic development belts. We need to promote economic integration in the Yangtze River Delta, deepen regional economic cooperation in the Pan-Pearl River Delta, and enhance coordinated development in the Bohai Rim and the Beijing-Tianjin-Hebei region. To achieve this, we must eliminate market barriers, local blockades, and administrative monopolies, and rely on both market forces and differentiated regional policies to promote the formation of a unified market in which fair competition can take place. In addition, we need to establish diverse mechanisms for investment and financing, support the development of large scale transit and circulation across regions, and develop a new inter-linking network of infrastructure. With regard to development across regions, within subregions, and in new economic development belts, we need to enhance the precision of our differentiated policies and promote the achievement of universal standards in the provision of basic public services.
第四，以创新驱动产业结构优化升级。调整产业结构，原动力在创新。要依靠创新驱动，辅之以差别化产业政策引导，促进产业有进有退，由全球价值链中低端向中高端跃升。坚持通过市场竞争实现优胜劣汰，鼓励企业兼并重组，强化环保、安全、能耗、用地等标准，清理各种优惠政策，促进落后、过剩产能退出，严控新上增量。推进企业加快技术改造，促进传统产业升级。建设创新平台，开展区域集聚试点，推动战略性新兴产业发展。服务业是我国产业结构中的“短板”，要依靠改革推动和开放倒逼加快发展，重点是将增值税覆盖至生产和服务的全部环节，推进金融、教育、文化、体育、医疗、养老等服务业领域有序开放，放宽外资准入限制。科技进步对产业发展和结构调整的支撑和引领作用日益凸显，要建立有效机制，强化企业在技术创新中的主体地位，调动科研人员积极性，使科技与产业紧密结合。坚持以不断深化改革，推动转方式调结构，促进中国经济提质增效升级。
Fourth, we need to drive the optimization and upgrading of our industrial structure through innovation. The impetus for the restructuring of our industries will come from innovation. By taking innovation as a driving force and supporting it with differentiated industrial policies, we will promote the advance of certain industries while urging the withdrawal of others, so as to push China towards the middle and the high-end of the international value chain. We will continue to draw on market competition to encourage the survival of the fittest, facilitate companies in engaging in mergers and reorganizations, and enhance standards pertaining to environmental protection, safety, energy consumption, and land use. We will straighten out various preferential policies, urge the exit of backward and excess production capacity, and impose strict controls on the increase of such production capacity. We will urge companies to accelerate their technological upgrading, and promote the upgrading of our traditional industries. At the same time, we need to establish new platforms for innovation, launch trials for regional clustering of specific industries, and promote the development of emerging industries of strategic significance. The service sector represents a weak area in China’s industrial structure. For this reason, we must promote the accelerated development of our service sector directly through reform and indirectly through opening up. In doing so, our key areas of focus will be extending the coverage of VAT to cover all aspects of production and services; promoting the orderly opening up of service industries such as finance, education, culture, sports, health care, and elderly care; and easing restrictions on the entry of foreign capital into these industries. The role of technological advances as both a supporting foundation and driving force for the development and restructuring of industry is becoming increasingly evident. Therefore, through the establishment of effective mechanisms, we must boost the core role of enterprises in technological innovation, fully motivate those engaged in scientific research, and forge close ties between technology and industry. With a commitment to constantly deepening reform, we will drive the transformation of China’s economic growth model, promote the restructuring of its economy, and raise the quality and efficiency of its economic development.
推进经济体制改革，意义重大，任务艰巨。我们要紧密团结在以习近平同志为总书记的党中央周围，高举中国特色社会主义伟大旗帜，以邓小平理论、“三个代表”重要思想、科学发展观为指导，锐意进取，攻坚克难，努力做好深化经济体制改革的各项工作，促进经济社会持续健康发展，为全面建成小康社会、建设富强民主文明和谐的社会主义现代化国家、实现中华民族伟大复兴的中国梦而奋斗！
Economic reform is an arduous yet hugely significant task. Rallying closely around the CPC Central Committee with Xi Jinping as General Secretary, we must hold high the great banner of socialism with Chinese characteristics, take Deng Xiaoping Theory, the important thought of Three Represents, and the Scientific Outlook on Development as our guide, forge ahead with determination, tackle challenges head-on, commit ourselves to our various tasks in deepening economic reform, and promote the sustained and healthy development of our economy and society. In doing so, we will work tirelessly to build a moderately prosperous society in all respects, establish a modern socialist country that is strong, prosperous, democratic, culturally advanced, and harmonious, and realize the Chinese Dream – the great rejuvenation of the Chinese nation.
来源：求是
心译翻译工作室
