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Opinions of the CPC Central Committee and the State Council on Accelerating the Improvement of the System of Socialist Market Economy in a New Era [Effective]
中共中央、国务院关于新时代加快完善社会主义市场经济体制的意见 [现行有效]
【法宝引证码】

Opinions of the CPC Central Committee and the State Council on Accelerating the Improvement of the System of Socialist Market Economy in a New Era 

中共中央、国务院关于新时代加快完善社会主义市场经济体制的意见

(May 11, 2020) (2020年5月11日)

The system of socialist market economy is a major theoretical and practical innovation in socialism with Chinese characteristics and an integral part of the basic socialist economic system. Since the launch of reform and opening up, especially the 18th CPC National Congress, China has adhered to comprehensively deepening reforms, brought out the powering effects of the reform of the economic system, continued improving the system of socialist market economy, greatly motivated hundreds of millions of people, significantly promoted the development of productivity, considerably enhanced the vitality of the CPC and the country, and created a miracle of rapid economic development rarely seen in the world. Nevertheless, as should be noted, socialism with Chinese characteristics is ushered into a new era, the principal social contradiction has changed, and the economy has shifted from the stage of high-speed growth to the stage of high-quality development. Compared with these new conditions and requirements, China has a market system remaining unsound and a market that has yet to mature, the relationship between the government and the market has not been completely unscrambled, there persist problems such as insufficient market incentives, impeded movement of factors, inefficient resource allocation, and a lack of microeconomic vitality, and there remain many institutional obstacles to promoting high-quality development, creating an overriding need to further free the mind, unswervingly deepen market-based reforms, expand high-level opening, and continue to make breakthroughs in and innovate the key, fundamental, and major reforms of the economic system. For the purposes of implementing the strategic arrangement of the 19th CPC National Congress and the Fourth Plenary Session of the 19th CPC Central Committee for adhering to and improving the basic socialist economic system, advancing the reform of the economic system and the reform of systems in other aspects at a higher starting point, at a higher level, with a more ambitious goal, and building a more systematic, complete, mature, and regular high-level system of socialist market economy, the following opinions are hereby offered. 社会主义市场经济体制是中国特色社会主义的重大理论和实践创新,是社会主义基本经济制度的重要组成部分。改革开放特别是党的十八大以来,我国坚持全面深化改革,充分发挥经济体制改革的牵引作用,不断完善社会主义市场经济体制,极大调动了亿万人民的积极性,极大促进了生产力发展,极大增强了党和国家的生机活力,创造了世所罕见的经济快速发展奇迹。同时要看到,中国特色社会主义进入新时代,社会主要矛盾发生变化,经济已由高速增长阶段转向高质量发展阶段,与这些新形势新要求相比,我国市场体系还不健全、市场发育还不充分,政府和市场的关系没有完全理顺,还存在市场激励不足、要素流动不畅、资源配置效率不高、微观经济活力不强等问题,推动高质量发展仍存在不少体制机制障碍,必须进一步解放思想,坚定不移深化市场化改革,扩大高水平开放,不断在经济体制关键性基础性重大改革上突破创新。为贯彻落实党的十九大和十九届四中全会关于坚持和完善社会主义基本经济制度的战略部署,在更高起点、更高层次、更高目标上推进经济体制改革及其他各方面体制改革,构建更加系统完备、更加成熟定型的高水平社会主义市场经济体制,现提出如下意见。
I. General requirements   一、总体要求
1. Guiding ideology. Xi Jinping Thought on Socialism with Chinese Characteristics in a New Era shall be the guidance, the spirit of the 19th CPC National Congress and the Second, Third, and Fourth Plenary Sessions of the 19th CPC Central Committee shall be comprehensively implemented, the basic theories, basic lines, and basic strategies of the CPC shall be resolutely carried out, the overall layout for "economic, political, cultural, social, and ecological progress" shall be advanced holistically, the Four-Pronged Comprehensive Strategy shall be advanced in a coordinated manner, the general work keynote of stable progress shall be adhered to, the new development concept shall be adhered to, the supply-side structural reform shall be adhered to as the main line, the people-centered development thinking shall be adhered to, the basic socialist economic system shall be adhered to and improved, the focus shall be put on improving the property rights system and the market-based allocation of factors, the reform of the economic system shall be comprehensively deepened, the improvement of the system of socialist market economy shall be accelerated, and a high-standard market system shall be established so as to achieve effective property right incentives, free movement of factors, flexible price response, fair and orderly competition, and survival of the fittest enterprises, strengthen and improve the supply of systems, propel the modernization of the national governance system and governance capacity, align boost that production relations with productivity and the superstructure with the economic foundation, and promote higher-quality, more efficient, more fair, and more sustainable development. (一)指导思想。以习近平新时代中国特色社会主义思想为指导,全面贯彻党的十九大和十九届二中、三中、四中全会精神,坚决贯彻党的基本理论、基本路线、基本方略,统筹推进“五位一体”总体布局和协调推进“四个全面”战略布局,坚持稳中求进工作总基调,坚持新发展理念,坚持以供给侧结构性改革为主线,坚持以人民为中心的发展思想,坚持和完善社会主义基本经济制度,以完善产权制度和要素市场化配置为重点,全面深化经济体制改革,加快完善社会主义市场经济体制,建设高标准市场体系,实现产权有效激励、要素自由流动、价格反应灵活、竞争公平有序、企业优胜劣汰,加强和改善制度供给,推进国家治理体系和治理能力现代化,推动生产关系同生产力、上层建筑同经济基础相适应,促进更高质量、更有效率、更加公平、更可持续的发展。
2. Basic principles (二)基本原则
—Adhering to Xi Jinping Thought on Socialism with Chinese Characteristics in a New Era as the guidance. The overall leadership of the CPC shall be adhered to and strengthened, the socialist system with Chinese characteristics shall be adhered to and improved, problem orientation shall be strengthened, correct reform strategies and methods shall be grasped, the manners for economic governance shall continue to be optimized, and endeavors shall be made to establish an economic system with an effective market mechanism, dynamic micro-participants, and moderate macro-regulation so as to enable the socialist system with Chinese characteristics to be more consolidated and fully reflect its superiority. --坚持以习近平新时代中国特色社会主义经济思想为指导。坚持和加强党的全面领导,坚持和完善中国特色社会主义制度,强化问题导向,把握正确改革策略和方法,持续优化经济治理方式,着力构建市场机制有效、微观主体有活力、宏观调控有度的经济体制,使中国特色社会主义制度更加巩固、优越性充分体现。
—Adhering to emancipating and developing productivity. The basic national condition, the primary stage of socialism, shall be firmly grasped, economic construction shall be unshakably centered around, the powering effects of the reform of the economic system shall be brought about, the reform in political, cultural, social, ecological civilization, and other fields shall be advanced in a coordinated manner, the efficient interaction between reforms and development shall be facilitated, and social productivity shall be further emancipated and developed so as to continuously meet the people's growing needs for a better life. --坚持解放和发展生产力。牢牢把握社会主义初级阶段这个基本国情,牢牢扭住经济建设这个中心,发挥经济体制改革牵引作用,协同推进政治、文化、社会、生态文明等领域改革,促进改革发展高效联动,进一步解放和发展社会生产力,不断满足人民日益增长的美好生活需要。
—Adhering to and improving the basic socialist economic system. The system of socialist market economy and other socialist basic economic systems in which the public ownership is dominant, and diverse forms of ownership develop side by side, in which distribution according to work is dominant, and diverse modes of distribution coexist, shall be improved and adhered to, and the socialist system with Chinese characteristics shall be organically integrated with the market economy so as to provide an important institutional guarantee for promoting high-quality development and building a modern economic system. --坚持和完善社会主义基本经济制度。坚持和完善公有制为主体、多种所有制经济共同发展,按劳分配为主体、多种分配方式并存,社会主义市场经济体制等社会主义基本经济制度,把中国特色社会主义制度与市场经济有机结合起来,为推动高质量发展、建设现代化经济体系提供重要制度保障。
—Adhering to correctly handling the relation between the government and the market. The reform direction of the socialist market economy shall be adhered to, the general laws of the market economy shall be more respected, the government's direct allocation of market resources and direct intervention in microeconomic activities shall be minimized, the decisive role of the market in resource allocation shall be maximized, and the government shall be better brought into play to effectively compensate for market failures. --坚持正确处理政府和市场关系。坚持社会主义市场经济改革方向,更加尊重市场经济一般规律,最大限度减少政府对市场资源的直接配置和对微观经济活动的直接干预,充分发挥市场在资源配置中的决定性作用,更好发挥政府作用,有效弥补市场失灵。
—Adhering to the supply-side structural reform as the main line. More reform methods shall be adopted, more market-based and law-based means shall be employed, more efforts shall be concentrated on consolidation, enhancement, improvement, and smoothness, structural reforms shall be strengthened, the supply of systems shall be innovated, economic innovation and competitiveness shall be continuously enhanced, effective demand shall be accommodated and created, and a higher-level dynamic balance between supply and demand shall be promoted. --坚持以供给侧结构性改革为主线。更多采用改革的办法,更多运用市场化法治化手段,在巩固、增强、提升、畅通上下功夫,加大结构性改革力度,创新制度供给,不断增强经济创新力和竞争力,适应和引发有效需求,促进更高水平的供需动态平衡。
—Adhering to the mutual promotion and advancement of expanding high-level opening and deepening market-based reforms. Opening shall be unswervingly expanded, the transition from the opening oriented to movement of goods and factors to the opening oriented to rules and other systems shall be promoted, the systems and experience of international mature market economies and the beneficial results of human civilization shall be drawn on, the articulation of domestic systems and rules with international standards shall be accelerated, and deep market-based reforms shall be facilitated by high-level opening. --坚持扩大高水平开放和深化市场化改革互促共进。坚定不移扩大开放,推动由商品和要素流动型开放向规则等制度型开放转变,吸收借鉴国际成熟市场经济制度经验和人类文明有益成果,加快国内制度规则与国际接轨,以高水平开放促进深层次市场化改革。
II. Adhering to the dominant position of public ownership and the side-by-side development of diverse forms of ownership and enhancing the vitality of micro-participants   二、坚持公有制为主体、多种所有制经济共同发展,增强微观主体活力
The public economy shall be unswervingly consolidated and developed, the development of the non-public economy shall be unwaveringly encouraged, supported, and guided, various forms of realizing public ownership shall be explored, the reform and development of private enterprises shall be supported, and more market participants full of vigor shall be cultivated. 毫不动摇巩固和发展公有制经济,毫不动摇鼓励、支持、引导非公有制经济发展,探索公有制多种实现形式,支持民营企业改革发展,培育更多充满活力的市场主体。
1. Advancing the layout optimization and structural adjustment of the state-owned economy. Advances and retreats as well as doing and not doing something shall be adhered to, the investment of more state-owned capital in important fields related to national economy and people's livelihood and fields related to the national economic lifeline, science and technology, national defense, and security, among others, shall be promoted, national strategic goals shall be served, the competitiveness, innovation capacity, control capacity, influence, and risk-resistant capacity of the state-owned economy shall be enhanced, state-owned capital shall be strengthened and optimized, and the loss of state-owned assets shall be effectively prevented. For the state-owned economy in fields of full competition, the allocation of state-owned capital shall be optimized by means of capitalization and securitization so as to increase the income of state-owned capital. The regulation of state-owned assets shall be further improved and strengthened, state-owned capital investment and operating companies shall be enabled to effectively perform their functions and roles, tailoring policies for each enterprise shall be adhered to, whichever matures shall be promoted, and whichever is launched shall be a success so as to revitalize existing state-owned capital and promote the preservation and appreciation of the value of state-owned assets. (一)推进国有经济布局优化和结构调整。坚持有进有退、有所为有所不为,推动国有资本更多投向关系国计民生的重要领域和关系国家经济命脉、科技、国防、安全等领域,服务国家战略目标,增强国有经济竞争力、创新力、控制力、影响力、抗风险能力,做强做优做大国有资本,有效防止国有资产流失。对处于充分竞争领域的国有经济,通过资本化、证券化等方式优化国有资本配置,提高国有资本收益。进一步完善和加强国有资产监管,有效发挥国有资本投资、运营公司功能作用,坚持一企一策,成熟一个推动一个,运行一个成功一个,盘活存量国有资本,促进国有资产保值增值。
2. Actively and properly advancing the mixed ownership reform of state-owned enterprises. On the basis of the in-depth implementation of the pilot program of the mixed ownership reform in key fields, in accordance with the requirements for improving governance, strengthening incentives, highlighting the main business, and raising efficiency, the mixed ownership reform shall be advanced, and the mixed ownership economy shall be developed in a regulated and orderly manner. For state-invested enterprises and enterprises invested by the state-owned capital operation company in fields of full competition, the conversion of certain state-owned equity into preferred shares shall be explored to strengthen the income function of state-owned capital. Qualified mixed-ownership enterprises shall be supported in establishing medium and long-term incentive mechanisms such as backbone employee stock ownership, listed company equity incentives, and technology-based enterprise equity and dividend incentives. The reform of state-owned enterprises shall be deepened, the improvement of the corporate governance structure and market-based operation mechanism of state-owned enterprises shall be accelerated, the tenure system and contract-based management of the management shall be improved, and the modern enterprise system with Chinese characteristics shall be improved. For mixed-ownership enterprises, the establishment of a governance mechanism and regulatory system different from those of wholly state-owned or wholly state-invested companies shall be explored. For mixed-ownership enterprises in which state-owned capital no longer has an absolutely controlling stake, the implementation of a more flexible and efficient regulatory system shall be explored. (二)积极稳妥推进国有企业混合所有制改革。在深入开展重点领域混合所有制改革试点基础上,按照完善治理、强化激励、突出主业、提高效率要求,推进混合所有制改革,规范有序发展混合所有制经济。对充分竞争领域的国家出资企业和国有资本运营公司出资企业,探索将部分国有股权转化为优先股,强化国有资本收益功能。支持符合条件的混合所有制企业建立骨干员工持股、上市公司股权激励、科技型企业股权和分红激励等中长期激励机制。深化国有企业改革,加快完善国有企业法人治理结构和市场化经营机制,健全经理层任期制和契约化管理,完善中国特色现代企业制度。对混合所有制企业,探索建立有别于国有独资、全资公司的治理机制和监管制度。对国有资本不再绝对控股的混合所有制企业,探索实施更加灵活高效的监管制度。
3. Steadily advancing the reform of natural monopoly industries. The reform focusing on separation of the government functions from enterprise management, separation of the government administration from state assets management, franchise operation, and government regulation shall be deepened, the quality of infrastructure supply in natural monopoly industries shall be enhanced, natural monopoly links shall be strictly regulated, the marketization of competitive links shall be accelerated, administrative monopolies shall be effectively broken, and monopolies in the market shall be prevented. An effectively competitive electricity market shall be built, power generation and consumption plans and electricity prices in competitive links shall be deregulated in an orderly manner, and the degree of marketization of electricity trading shall be improved. The fair opening of oil and gas pipeline networks to market participants shall be advanced, the sources and sales prices of natural gas shall be deregulated in a timely manner, and the competitive oil and gas circulation market shall be improved. The reform of the railway industry shall be deepened, and the diversification of market participants and moderate competition in railway transportation business shall be promoted. The separation operation between universal postal services and competitive business shall be achieved. The tobacco trade monopoly system shall be improved, and a new mechanism for moderate competition shall be established. (三)稳步推进自然垄断行业改革。深化以政企分开、政资分开、特许经营、政府监管为主要内容的改革,提高自然垄断行业基础设施供给质量,严格监管自然垄断环节,加快实现竞争性环节市场化,切实打破行政性垄断,防止市场垄断。构建有效竞争的电力市场,有序放开发用电计划和竞争性环节电价,提高电力交易市场化程度。推进油气管网对市场主体公平开放,适时放开天然气气源和销售价格,健全竞争性油气流通市场。深化铁路行业改革,促进铁路运输业务市场主体多元化和适度竞争。实现邮政普遍服务业务与竞争性业务分业经营。完善烟草专卖专营体制,构建适度竞争新机制。
4. Creating an institutional environment in support of the high-quality development of the non-public economy. The market, policy, rule-of-law, and social environment that support the development of the private economy and foreign-funded enterprises shall be improved so as to further stimulate vitality and creativity. Enterprises of all types of ownership shall be treated equally in factor acquisition, access granting, business and operation, government procurement, bidding, and other aspects, and various obstacles and implicit barriers to market competition shall be removed so as to create a market environment in which participants of all types of ownership legally and equally use resource factors, openly, fairly, and equitably participate in competition, and receive equal protection from the law. The detailed implementation rules and specific measures supporting the non-public economy in entering electricity, oil and gas, and other fields shall be improved, and market access in the service sector shall be significantly relaxed so as to give more development room to private capital. The system supporting the development of small and medium-sized enterprises ("SME") shall be improved, the supply of financial services directed at SME shall be increased, and the development of small and medium-sized financial institutions such as private banks and community banks shall be supported. The support system of the financing and credit enhancement of private enterprises shall be improved. The support system of the direct financing of private enterprises shall be improved. A permanent mechanism for reviewing and preventing arrears owed to private enterprises and SME shall be improved, and a market environment conducive to solving debt problems among private enterprises shall be created. A system of policies for building a close and clean relation between the government and the business community shall be improved, a regularized and mechanism-based communication channel between the government and enterprises shall be established, and private enterprises shall be encouraged to participate in the implementation of major national strategies. (四)营造支持非公有制经济高质量发展的制度环境。健全支持民营经济、外商投资企业发展的市场、政策、法治和社会环境,进一步激发活力和创造力。在要素获取、准入许可、经营运行、政府采购和招投标等方面对各类所有制企业平等对待,破除制约市场竞争的各类障碍和隐性壁垒,营造各种所有制主体依法平等使用资源要素、公开公平公正参与竞争、同等受到法律保护的市场环境。完善支持非公有制经济进入电力、油气等领域的实施细则和具体办法,大幅放宽服务业领域市场准入,向社会资本释放更大发展空间。健全支持中小企业发展制度,增加面向中小企业的金融服务供给,支持发展民营银行、社区银行等中小金融机构。完善民营企业融资增信支持体系。健全民营企业直接融资支持制度。健全清理和防止拖欠民营企业中小企业账款长效机制,营造有利于化解民营企业之间债务问题的市场环境。完善构建亲清政商关系的政策体系,建立规范化机制化政企沟通渠道,鼓励民营企业参与实施重大国家战略。
III. Consolidating the basic systems of the market economy and ensuring fair competition in the market   三、夯实市场经济基础性制度,保障市场公平竞争
A high-standard market system shall be established, and property rights, market access, fair competition, and other systems shall be comprehensively improved so as to lay a solid foundation for the effective operation of the socialist market economy. 建设高标准市场体系,全面完善产权、市场准入、公平竞争等制度,筑牢社会主义市场经济有效运行的体制基础。
1. Comprehensively improving the property rights system. The modern property rights system with clear ownership, clear rights and responsibilities, strict protection, and smooth circulation shall be improved, and property right incentives shall be strengthened. The property rights management system for commercial state-owned assets with capital management as the mainstay shall be improved, and the transformation of the functions and methods of duty performance of state-owned assets supervision and administration institutions shall be accelerated. The property rights system for natural resource assets shall be improved. The property rights protection system based on the principle of fairness shall be improved, property rights in the private economy shall be comprehensively and equally protected according to the law, and various acts against the lawful rights and interests of private enterprises shall be severely investigated and punished according to the law. The policy on extending the second round of usufruct on rural land for another 30 years after its expiration shall be implemented, and the system of "separation of three rights" to rural land subject to usufruct shall be improved. The reform of rural collective property rights system shall be deepened, the powers of property rights shall be improved, commercial assets shall be converted into shares and quantified in favor of the members of collective economic organizations, the effective organizational forms and operating mechanisms of the rural collective economy shall be innovated, and the basic rural operation system shall be improved. The systems and rules of the creation, application, trading, and protection of intellectual property rights shall be improved and refined, the establishment of a punitive compensation system for the infringement of intellectual property rights shall be expedited, the protection of trade secrets shall be strengthened, and the intellectual property rights protection system in new fields and new forms of business shall be improved. (一)全面完善产权制度。健全归属清晰、权责明确、保护严格、流转顺畅的现代产权制度,加强产权激励。完善以管资本为主的经营性国有资产产权管理制度,加快转变国资监管机构职能和履职方式。健全自然资源资产产权制度。健全以公平为原则的产权保护制度,全面依法平等保护民营经济产权,依法严肃查处各类侵害民营企业合法权益的行为。落实农村第二轮土地承包到期后再延长30年政策,完善农村承包地“三权分置”制度。深化农村集体产权制度改革,完善产权权能,将经营性资产折股量化到集体经济组织成员,创新农村集体经济有效组织形式和运行机制,完善农村基本经营制度。完善和细化知识产权创造、运用、交易、保护制度规则,加快建立知识产权侵权惩罚性赔偿制度,加强企业商业秘密保护,完善新领域新业态知识产权保护制度。
2. Fully implementing the market access negative list system. The "national one-list" management model shall be promoted, and the unity and authority of the list shall be defended. A dynamic adjustment mechanism and a third-party assessment mechanism for the market access negative list shall be established, and a pilot program of further relaxing the access restrictions with a focus on the service sector shall be launched. A unified list code system shall be established to enable the matters on the list to be closely linked with and match the administrative approval system. A public disclosure mechanism of information on the market access negative list shall be established to enhance the transparency of access policies and the convenience of using the negative list. A market access assessment system shall be established, various explicit and implicit barriers shall be regularly assessed, identified, and reviewed, and the general implementation of "entry unless prohibited" shall be promoted. The production licensing system shall be reformed. (二)全面实施市场准入负面清单制度。推行“全国一张清单”管理模式,维护清单的统一性和权威性。建立市场准入负面清单动态调整机制和第三方评估机制,以服务业为重点试点进一步放宽准入限制。建立统一的清单代码体系,使清单事项与行政审批体系紧密衔接、相互匹配。建立市场准入负面清单信息公开机制,提升准入政策透明度和负面清单使用便捷性。建立市场准入评估制度,定期评估、排查、清理各类显性和隐性壁垒,推动“非禁即入”普遍落实。改革生产许可制度。
3. Fully implementing the fair competition review system. The framework of competition policies shall be improved, an implementation mechanism of competition policies shall be established and improved, and the status of competition policies as the foundation shall be enhanced. The rigid constraints imposed by fair competition review shall be tightened, the detailed rules for the implementation of fair competition review shall be revised and improved, a random inspection, evaluation, and publicity system for fair competition review shall be established, and a third-party review and assessment mechanism shall be established and improved. Incremental review and backlog review shall be conducted in a coordinated and effective manner, and existing policies that impede a national unified market and fair competition shall be gradually reviewed and repealed. Green channels for submitting and reporting violations of fair competition shall be established. Anti-monopoly and anti-unfair competition enforcement actions shall be strengthened and improved, enforcement actions shall be strengthened, and the cost of violations of the law shall be increased. A fair competition culture shall be cultivated and promoted, and a social environment for fair competition shall be further created.
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 (三)全面落实公平竞争审查制度。完善竞争政策框架,建立健全竞争政策实施机制,强化竞争政策基础地位。强化公平竞争审查的刚性约束,修订完善公平竞争审查实施细则,建立公平竞争审查抽查、考核、公示制度,建立健全第三方审查和评估机制。统筹做好增量审查和存量清理,逐步清理废除妨碍全国统一市场和公平竞争的存量政策。建立违反公平竞争问题反映和举报绿色通道。加强和改进反垄断和反不正当竞争执法,加大执法力度,提高违法成本。培育和弘扬公平竞争文化,进一步营造公平竞争的社会环境。
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