关于2012年国民经济和社会发展计划执行情况与2013年国民经济和社会发展计划草案的报告

REPORT ON THE IMPLEMENTATION OF THE 2012 PLAN FOR NATIONAL ECONOMIC AND SOCIAL DEVELOPMENT AND ON THE 2013 DRAFT PLAN FOR NATIONAL ECONOMIC AND SOCIAL DEVELOPMENT 

—— 2013年3月5日在第十二届全国人民代表大会第一次会议上

First Session of the Twelfth National People's Congress

March 5, 2013

国家发展和改革委员会

National Development and Reform Commission

目录

Contents

1. On the whole the economy operated steadily.

Downward pressure on economic growth increased considerably in early 2012. In response the central leadership sized up the situation, gave higher priority to ensuring steady growth, adopted a number of targeted measures, and yielded the desired results. Preliminary estimates suggest China's gross domestic product (GDP) amounted to 51.9322 trillion yuan, an increase of 7.8%, and 0.3 percentage points higher than the targeted figure. We followed a proactive fiscal policy and increased structural tax reductions, thereby ensuring spending on major areas including those related to the people's wellbeing. National revenue totaled 11.721 trillion yuan, an increase of 12.8%, and the fiscal deficit was 800 billion yuan. We followed a prudent monetary policy, maintained stable, reasonable growth in the money and credit supply, and increased support for key areas and weak links. We granted 8.2 trillion yuan in RMB loans for the year, 732 billion yuan more than the previous year. At the end of 2012, the balance of broad money supply (M2) rose 13.8%. We improved regulation of economic activities, and ensured stable and orderly supplies of coal, electricity, petroleum, gas, and transport. The performance of enterprises steadily picked up, and the profits of large industrial enterprises reached 5.5578 trillion yuan, an increase of 5.3% over the previous year.

2. Price increases dropped steadily.

We made keeping overall price levels stable our main task in carrying out macro-control measures, and strengthened comprehensive price regulation and oversight, with the rise in consumer price index (CPI) for the year dropping 2.8 percentage points to 2.6% and being kept below the targeted figure. Adequate market supply was ensured. We strengthened coordination of the production, transportation, and sale of important commodities, as well as handling of their reserves and adjustment of their imports and exports. We released a total of 18.5 million tons of policy-supported grain for the year. We successfully implemented the contingency plan for adjusting the market price of hogs, improved the reserve system for winter and spring vegetables in major northern cities, and carried out trials of the policy-supported insurance system for basic vegetables in an orderly fashion. We tightened oversight and control on market prices and charges, regulated preschool education fees and prices of teaching and tutorial materials for primary and secondary school students, lowered drug prices, and reviewed and rectified illegal and unreasonable road tolls and fees related to enterprises, thereby effectively lightening the burden on consumers and enterprises. We inspected problems in marking of commodity housing prices, fees charged by commercial banks and telecommunication services, and fees related to agriculture and imports and exports. We pushed forward law enforcement efforts to counter price fixing. Last year, we investigated and dealt with 37,800 cases of pricing irregularities, and imposed economic penalties worth 2.122 billion yuan.

3. The position of agriculture as the foundation of the economy was further consolidated.

We increased policy support to strengthen agriculture, benefit farmers, and enrich rural areas. Total central government expenditures on agriculture, rural areas, and farmers increased by 18%; the proportion of investment funds from the central government budget used in this area were raised to 50.5%; and supply of credit for this purpose rose by 20.7%. We implemented the strictest possible system for protecting arable land, and kept the total area of arable land above 121.3 million hectares. We fully implemented the plan to increase China's grain production capacity by 50 million tons, and projects to develop the community-level service system for spreading agricultural technology were carried out in nearly all towns and townships. We accelerated the development of projects to harness major rivers and lakes and protect major water sources in an all-around way, and strengthened efforts to build and transform large and medium-sized irrigated areas, upgrade and retrofit large irrigation and drainage pumping stations, develop small water conservancy projects, and harness small and medium-sized rivers. We upgraded more sea fishing boats and built more large-scale standardized hog and dairy cow farms. We raised the price floors for wheat and rice, offered higher prices for corn, soybeans, and rapeseed purchased and stockpiled on a temporary basis, and increased temporary purchases and stockpiling of cotton and sugar. Total grain output increased for the ninth consecutive year and amounted to 589.6 billion kilograms, up 3.2%, and output of cash crops rose steadily. Working and living conditions in rural areas improved. We provided safe drinking water to 81% of the rural population, installed or upgraded an additional 317,600 kilometers of electric power lines in the countryside, laid or upgraded 194,000 kilometers of rural roads, made methane available to another 1.8 million rural households, and renovated dilapidated houses for 5.6 million rural households. We supported the construction of grain depots with a total capacity of 4.22 million tons, as well as the construction of 105 wholesale markets for agricultural products and cold-chain logistics facilities with a handling capacity of 8 million tons. We carried out the project on rural goods distribution to get retailers to open stores in more townships and villages, and got standardized rural stores to set up in 75% of the country's villages.

4. We speeded up adjustment to the economic structure.

Fresh progress was made in scientific and technological innovation and development of high-technology industries. We introduced guidelines on deepening reform of the management system for science and technology and accelerating development of a national innovation system, and promulgated and implemented the plan to develop strategic emerging industries in the Twelfth Five-Year Plan period. Spending on R&D as a percentage of GDP reached 1.97%. New economic growth areas such as biomedicine, online information services, and ocean engineering equipment grew rapidly. Value-added of high-tech manufacturing industries grew 12.2%, 2.2 percentage points higher than the growth rate of value-added of large industries. Transformation and upgrading of traditional industries progressed further, projects to relocate some major coastal steel bases and steel mills in cities were launched, and the proportion of new dry-process cement reached over 90% of total cement output. Enterprise mergers and reorganizations continued to make progress, and fresh results were achieved in closing down outdated production facilities. We made progress in developing the service sector and quickly developed producer and consumer services. Value-added of the service sector increased 8.1%, 0.2 percentage points higher than the planned target, and this sector continued to rank first in employing people. Transportation infrastructure and energy production are now better able to meet demand. We put into operation 5,382 kilometers of new railway lines, including 2,723 kilometers of high-speed railway lines; opened 58,672 kilometers of new highways to traffic, including 9,910 kilometers of expressways; put into service 96 seaport berths for 10,000 ton-class or larger ships; and built two new civilian airports. We intensified construction of large energy production bases, and accelerated development of green mining and the comprehensive upgrading and renovation of coal-fired power plants. The installed power-generating capacity of on-grid wind power and photovoltaic power facilities increased 15 million kilowatts and 3 million kilowatts, respectively. The output of raw coal, crude oil, and natural gas rose by 3.8%, 2.3%, and 4.4% year on year, respectively. Electricity production increased by 4.8%.

（五）节能减排和环境保护积极推进。单位国内生产总值能耗下降3.6%，降幅比上年扩大1.59个百分点，实现计划目标。节能产品惠民工程继续实施，工业、建筑、交通运输、公共机构等重点领域节能减排全面强化。鼓励循环经济发展的政策进一步完善，“城市矿产”、园区循环化改造、再制造产品推广、资源综合利用等示范试点建设加强，支持了489个循环经济和资源节约重大示范项目，建成后可形成年节水能力2.6亿吨、废物循环利用量6900多万吨。继续推进天然林资源保护、退耕还林、退牧还草、防护林体系建设、京津风沙源治理、石漠化综合治理等重点生态工程建设，全年完成造林面积601万公顷，治理退化草原582.7万公顷。修订环境空气质量标准，增加PM2.5等监测指标，并在部分地区、城市开展监测和信息发布。加快城镇污水垃圾处理设施及污水管网工程建设，新增污水日处理能力1106万吨、中水日回用能力221万吨、垃圾日处理能力9.3万吨。二氧化硫、化学需氧量、氨氮、氮氧化物排放量分别下降4.52%、3.05%、2.62%、2.77%，万元工业增加值用水量下降8%，城市污水处理率和城市生活垃圾无害化处理率分别达到84.9%和81%，均实现计划目标。应对气候变化工作扎实推进，单位国内生产总值二氧化碳排放量下降5.02%，超过计划目标1.52个百分点。积极推进应对气候变化南南合作，建设性地参与国际谈判，为推动联合国气候变化多哈会议取得积极成果作出了重要贡献。

（注：M2为M右下角加2，PM2.5为PM右下角加2.5）

5. Great efforts were made to conserve energy, reduce emissions, and protect the environment.

Energy consumption per unit of GDP met the planned target by dropping 3.6%, 1.59 percentage points more than the previous year. We continued with the project to promote energy-efficient products for the benefit of the people, and comprehensively stepped up efforts to conserve energy and reduce emissions in key areas such as manufacturing, construction, transportation, and public institutions. We further improved policies for encouraging development of a circular economy. We intensified efforts to carry out pilot projects for demonstration of recovering mineral resources from city waste, upgrading industrial parks to make their operations more circular, promoting remanufacturing, and facilitating comprehensive use of resources. We supported 489 major demonstration projects to develop a circular economy and conserve resources, capable of saving 260 million tons of water and recycling over 69 million tons of waste annually. We continued to carry out key ecological projects to protect virgin forests, return farmland to forests and grazing land to grasslands, build forest shelterbelts, control the sources of dust storms affecting Beijing and Tianjin, and comprehensively deal with stony deserts. During the year, 6.01 million hectares of land were afforested and 5.827 million hectares of degraded grasslands were improved. We modified ambient air quality standards by including the monitoring of fine particulate matter (PM2.5) and published relevant data in some areas and cities. We moved faster to construct urban sewage and garbage treatment facilities and sewer lines, increasing daily capacity of wastewater treatment by 11.06 million tons, recycled water production by 2.21 million tons, and garbage treatment by 93,000 tons. Sulfur dioxide emissions, chemical oxygen demand, ammonia nitrogen, and emissions of nitrogen oxide dropped 4.52%, 3.05%, 2.62%, and 2.77%, respectively, water consumption per 10,000 yuan of value-added of industry decreased 8%, and the percentages of urban sewage treated and urban household waste safely handled reached 84.9% and 81%, respectively, all meeting their planned targets. We made steady progress in responding to climate change. Carbon dioxide emissions per unit of GDP decreased 5.02%, 1.52 percentage points higher than the planned target. We energetically promoted South-South cooperation in responding to climate change, played a constructive role in international talks, and made important contributions to the positive outcomes achieved at the Doha United Nations Climate Change Conference.

6. Reform and opening up continued to deepen.

We carried forward reforms in major areas and key links. Ministries directly under the State Council eliminated or streamlined another 314 items subject to examination and approval, making this the sixth time they did this and bringing the total number of eliminated or streamlined items to 2,497, 69.3% of the total. We upheld and improved the basic economic system, and steadily carried out the reform and reorganization of state-owned enterprises. Nine companies of which central government enterprises hold the controlling interest became listed on domestic or overseas stock markets, and the pilot project for standardizing boards of directors was extended to 51 central government enterprises. We formulated and implemented the guidelines on further supporting the sound development of small and micro businesses, and introduced 42 detailed rules for implementing the guidelines on encouraging and guiding the sound development of nongovernmental investment. We intensified efforts to reform prices of resource products, progressed smoothly with trial reforms of progressive pricing for household electricity consumption and the pricing mechanism for natural gas, and further improved the pricing mechanisms for electricity generated from renewable energy sources and for hydropower and nuclear power. We accelerated reform of the fiscal, taxation, and financial systems. We extended trials to replace the imposition of business tax with value-added tax (VAT) to nine provinces and municipalities directly under the central government and three cities specially designated in the state plan. We established experimental zones for comprehensive financial reform and pushed forward rural financial reform. We expanded the floating range for interest rates on RMB deposits and loans, made the exchange rates for RMB against other currencies more flexible, and steadily widened the use of RMB in cross-border trade and investment. We achieved fresh progress in comprehensive rural reforms and the tenure reform for collective forests, and carried out the trial reform of state-owned forestry farms in an orderly manner. We obtained significant results in the reform of the medical and health care systems and launched the plan for deepening it in the Twelfth Five-Year Plan period. We consolidated the system for basic drugs, and pressed ahead with the comprehensive reform of community-level medical and health care institutions and the trial reform of county-level public hospitals. The three basic medical insurance schemes have covered over 95% of the country’s urban and rural residents. We made new breakthroughs in reforming and making innovations in cultural systems and mechanisms, and basically completed the tasks of turning the nation's state-owned theatre troupes into enterprises or dissolving or merging them.

7. New results were achieved in ensuring and improving the people's wellbeing.

The overall employment situation remained stable. An additional 12.66 million urban jobs were created, 3.66 million more than the targeted amount, and the urban registered unemployment rate at the end of 2012 stood at 4.1%, well below the target. Individual income increased rapidly, with urban per capita disposable income reaching 24,565 yuan and rural per capita net income reaching 7,917 yuan, up 9.6% and 10.7%, in real terms after adjusting for inflation, respectively, both higher than the economic growth rate. We further increased the level of social security benefits. We realized the full coverage of the new type of old-age insurance for rural residents and the old-age insurance system for non-working urban residents, launched the major disease insurance pilot program for rural and non-working urban residents, and increased government subsidies for the new type of rural cooperative medical care system and the basic medical insurance scheme for non-working urban residents to 240 yuan per person per year. By the end of 2012, urban population covered by basic old-age, basic medical, unemployment, worker's compensation, and maternity insurance totaled 324.8 million, 535.89 million, 152.25 million, 189.93 million, and 154.45 million, respectively, and the number of people covered by the new type of old-age insurance for rural residents reached 462.69 million. The system of subsistence allowances benefited 53.409 million rural residents and 21.425 million urban residents. While continuing to strengthen regulation of the real estate market, we further increased support for government-subsidized housing development. Last year we basically completed work on 6.01 million units of government-subsidized housing in urban areas and began construction on an additional 7.81 million units, with both numbers exceeding the planned figures.

At the same time, we are keenly aware that China still faces many risks and challenges in its development.

The world financial crisis is continuing to have a profound effect, the global economy is growing sluggishly, latent inflationary pressure is on the increase, developed economies are subject to high fiscal and financial risks, and protectionism in international trade and investment has intensified.

Domestically, unbalanced, uncoordinated, and unsustainable development remains a serious problem, and is very acute in some areas.

First, the foundation for economic turnaround is not firm. Consumption is unable to provide a very strong impetus to economic growth, enterprises are less able and willing to invest, and external demand will not change for the better in the near future.

Second, some enterprises have difficulties with their production and operations. The rising cost of factors of production and weak innovation capabilities have caused a profit squeeze among enterprises. The proportion of loss-making large industrial enterprises has increased by 2.2 percentage points over the previous year, and the difficulties of small and micro businesses have been even more severe.

Third, overcapacity is a serious problem. Traditional manufacturing industries, especially those that are energy intensive and have high emissions, are plagued by overcapacity, and some emerging industries are undergoing haphazard development, thus making it difficult to improve enterprises' performance and industrial competitiveness.

Fourth, it has become harder to promote steady growth of agricultural production and increase rural income. Arable land, fresh water, and other natural resources are highly strained, agricultural infrastructure is weak, and increases in rural residents' income from both agricultural and nonagricultural work may slow down. In addition, slowing economic growth and enterprises' difficulties will continue to affect employment over time. The imbalance between government revenue and expenditures is serious. Latent risks exist in the financial sector. The need to protect the ecological environment is pressing. Some cities are under pressure for housing prices to rebound. The problem of various kinds of wastefulness is staggering. Many issues concerning land expropriation, housing demolition, workplace safety, food safety, and income distribution have quite an impact on social harmony and stability.

We must take these problems very seriously and adopt measures to solve them.