韩正市长政府工作报告（全文）

　　——2005年1月18日在上海市第十二届人民代表大会第三次会议上　　
　　
　　
　　各位代表：
　　
　　现在，我代表上海市人民政府，向大会作政府工作报告，请予审议，并请各位政协委员和其他列席人员提出意见。
　　
　　一、2004年工作回顾
　　
　　过去的一年，是上海树立和落实科学发展观，坚决贯彻中央宏观调控决策，大力实施科教兴市主战略，推动经济社会平稳健康协调发展的重要一年。在党中央、国务院和中共上海市委的领导下，各级政府和全市人民一道，以邓小平理论和“三个代表”重要思想为指导，认真贯彻党的十六大、十六届三中、四中全会和市委八届四次、五次全会精神，开拓进取，扎实工作，完成了市十二届人大二次会议确定的各项目标和任务。
　　
　　——经济保持平稳健康发展。全市生产总值预计达到7440亿元，按可比价格计算比上年增长13.5％，连续13年保持两位数增长。
　　
　　——财政收入较快增长。地方财政收入比上年增长24.5％。
　　
　　——研发和环保投入继续增加。全社会研究与发展经费支出和环保投入相当于全市生产总值的比例，预计分别达到2.29％和3.03％。
　　
　　——促进就业实现预期目标。新增就业岗位预计60.8万个；城镇登记失业率预计为4.5％，是近10年来的首次下降。
　　
　　——物价保持基本稳定。居民消费价格预计比上年上涨2.2％。
　　
　　——城乡居民收入进一步提高。城市和农村居民家庭人均可支配收入预计分别比上年增长12.2％和10.2％，其中农村居民家庭人均可支配收入增幅为1997年以来最高。
　　
　　一年来，我们主要做了以下工作：
　　
　　以贯彻落实中央宏观调控决策为主线，保持了经济平稳健康发展。把思想和认识统一到中央对经济形势的科学判断上来，把工作和行动统一到中央宏观调控决策和总体部署上来，结合上海实际，全面、正确、积极地贯彻中央宏观调控决策，态度坚决，措施有力，成效明显。
　　
　　把贯彻中央宏观调控决策与调整经济结构结合起来，着力提高经济运行的质量和效益。制定了优先发展现代服务业实施纲要，第三产业快速回升，增幅预计比上年提高4.9个百分点。制定了优先发展先进制造业行动方案，推进产业基地和一批重大项目建设。全市工业增加值预计比上年增长16.1％，高新技术产业产值占全市工业总产值的比重预计达到28.2％，工业企业利润突破1000亿元。认真贯彻2004年中央一号文件精神，粮食增产、农民增收的各项政策得到切实落实。积极应对煤电油运供应紧张的挑战，确保了城市正常的生产生活秩序。着力优化需求结构，促进投资、消费、出口共同拉动经济增长。着眼于促进房地产市场健康发展，采取控制动拆迁总量、加快中低价商品房建设、限制期房转让等措施，加大了房地产市场的调控力度。
　　
　　把贯彻中央宏观调控决策与加强制度创新结合起来，促进经济持续增长与资源集约利用相协调。落实国家最严格的耕地保护制度，切实加强规划和土地管理，撤销整合了一批开发区，探索建立“批项目、核土地”制度，制定实施土地储备管理办法。注重产业政策与能源政策相配套，淘汰了一批高能耗、高物耗的企业和产品。
　　
　　把贯彻中央宏观调控决策与优化投资结构结合起来，保持投资规模与经济增长相适应。坚持“区别对待、有保有压”的原则，严格清理固定资产投资项目，重点支持世博会项目、产业升级项目，以及能源、交通、环保、社会事业等领域的投资，投资规模适度增长，投资结构进一步优化。同时，积极配合国家金融调控和监管部门，加强信贷管理，防范和化解金融风险，促进金融业健康发展。
　　
　　把贯彻中央宏观调控决策与加强市场监管结合起来，维护市场秩序，保持物价稳定。制定和落实确保粮食生产和供应的政策措施，完善与吉林、黑龙江等地的粮食产销合作机制，确保粮食供应，保持粮价稳定。加强重要商品市场监测。以食品、药品安全监管为重点，加大了整顿和规范市场经济秩序的力度。
　　
　　以改革为动力，推进科技创新和各项社会事业全面发展。贯彻落实《上海实施科教兴市战略行动纲要》，加快科技创新步伐。立足于完善科技创新环境，集中力量建设公共服务平台，研发公共服务平台开始发挥实效。启动了首批重大产业科技攻关项目。完善了加快科技成果转化的政策。瞄准国家重大科技攻关项目，结合上海经济社会发展的需要，明确了“部市合作”的科技攻关领域。制定并实施了知识产权战略纲要，加强了知识产权工作。以引进和培养紧缺人才为重点，努力吸引国内外高层次人才，加快海外留学人才集聚。
　　
　　推动教育改革和发展。以召开市教育工作会议为契机，深入调研，提出了上海教育现代化发展的战略目标。以推进教育综合改革为重点，明确了各级各类教育改革发展的任务和举措。加快推进义务教育均衡发展，采取措施努力减轻中小学生过重的课业负担，切实改善郊区公办中小学校的办学条件，提高了郊区基础教育的质量。在抓紧高校布局结构调整的同时，进一步推进高校重点学科建设，实施了研究生教育改革。以就业为导向，加快职业教育发展，基本完成了百所中等职业学校重点建设工程。
　　
　　推进文化体制改革，加快文化事业发展，进一步繁荣文艺创作。成功举办了国际艺术节、F1中国站等一系列重要文化节庆和重大赛事。建成了一批科普馆、博物馆、社区文化设施和健身设施，深入开展群众文化活动和全民健身活动。上海体育健儿在雅典奥运会和残奥会上取得优异成绩。大力开展“与文明同行，做可爱的上海人”主题实践活动，加强了精神文明建设。
　　
　　大力推进公共卫生体系建设三年行动计划和健康城市建设三年行动计划。市公共卫生中心和市疾病预防控制中心新实验楼建成并投入使用。加大了对公共卫生和传染病防治的投入，提高了人均预防保健经费，实行了肺结核病人免费治疗和外来人口儿童免费计划免疫。切实加强基层和郊区医疗卫生服务，开展了新型社区卫生服务模式试点，完成了40所乡镇卫生院标准化建设。采取严格措施有效防范非典和高致病性禽流感。
　　
　　以枢纽型、功能性、网络化重大基础设施建设和环境保护为重点，加强城市建设和管理。洋山深水港区一期工程加快推进，港区、东海大桥和临港新城建设完成了节点目标。浦东国际机场二期工程、轨道交通网、高速公路网、中环线、上海铁路南站等一批重大基础设施工程加快建设。复兴东路隧道建成通车。西气东输工程上海段和外高桥电厂二期工程相继建成。信息基础设施集约化建设不断推进，功能性设施的综合服务能力进一步提升。
　　
　　世博会筹备工作全面启动。在国务院的直接领导下，正式成立了2010年上海世博会组织委员会和执行委员会，完成了《中国2010年上海世博会注册报告》编制工作，确定了世博园区规划控制区域，加快了世博园区规划设计工作。进一步加强了黄浦江两岸规划管理和土地控制，重点地区开发加快推进。
　　
　　以城市规划管理、交通排堵保畅为重点，切实加强城市管理。认真落实市规划工作会议精神，在中心城区积极推行“双增双减”，切实加强了对新建项目的规划管理。高度重视解决交通拥堵问题，加强了交通设施建设、交通流量控制和交通管理，加大了排堵保畅力度。深化市容环卫行业市场化改革，市容市貌进一步改善。建成并启用市应急联动中心，城市灾害应急处置能力不断提高。
　　
　　全力推进第二轮环保三年行动计划。着力加强水环境污染治理，建设了竹园等一批污水处理设施。加强清洁能源替代和扬尘污染控制，大气环境质量继续改善。关停了一批污染严重的生产线和企业，吴淞、桃浦工业区环境综合整治取得成效。加强农业污染治理，关闭了一批禁养区内的畜禽牧场。进一步加快绿化建设，全市新建公共绿地约1240公顷。崇明东滩和浦东九段沙创建国家级自然保护区工作进展顺利，通过了国家自然保护区评审委员会评审。
　　
　　以体制机制创新为突破口，进一步推进改革开放。积极稳妥地推动国资国企改革。顺利实施了电气、农工商、港务、上汽等国有控股公司和大企业集团改革重组，完成轻工集团抓大放小，制定实施了一系列国资国企改革制度规范，完善国资监管方式，初步建立了新型国资监管体制框架。宝钢和上汽集团跻身全球500强企业行列。鼓励非公企业参与国有企业改制和重组，非公经济加快发展。有序启动财税体制改革，整合税收征管机构。积极推进社会诚信体系建设，正式施行《上海市个人信用征信管理试行办法》，信用服务行业加快发展。
　　
　　继续支持浦东开发开放先行先试，加快功能性项目和政策的实施，一批中外金融机构、跨国公司地区总部和研发机构向浦东集聚。充分发挥上海口岸优势，推进“区港联动”试点，加快电子通关步伐，口岸贸易便利化程度进一步提高。口岸进出口总额预计达到2825.8亿美元，占全国的四分之一左右。上海港集装箱吞吐量达到1455.4万标准箱。落实国家出口退税政策，积极培育出口新增长点，全市外贸出口预计完成735.2亿美元，比上年增长51.6％，高新技术产品和机电产品出口比重进一步提高。重视加强服务，改善投资环境，扩大利用外资领域，利用外资的质量和水平进一步提高。全年直接利用外资实际到位金额预计65.4亿美元，比上年增长11.8％。加快实施“走出去”战略，海外工程承包和兼并收购境外企业取得新进展。
　　
　　进一步强化服务全国的大局意识，加强与兄弟省市多层次、多形式的交流与合作。制定了《关于进一步服务全国加强上海国内合作交流的若干意见》。积极推动长江三角洲地区联动发展，积极参与西部大开发和东北等老工业基地振兴。加大了对口支援力度。深入开展沪港经贸合作。
　　
　　以改善人民群众生活为出发点，进一步促进就业、完善社会保障体系。实施了“万人就业项目”，吸纳就业困难人员约6.7万人。加大对劳动者自主创业的扶持力度，创业环境进一步优化，职业技能培训得到加强。积极促进农村富余劳动力非农就业，新增非农就业岗位约15.3万个。加强劳动保障监察，劳动力市场进一步规范。
　　
　　顺利推出了工伤保险，完善了城镇退休人员养老金增长机制，提高了生育保险待遇水平，包含养老、医疗、失业、生育、工伤等保险在内的城镇社会保险制度框架基本形成。小城镇社会保险制度得到积极稳妥推进，参保人数约58.7万人，成为深受郊区离土农民欢迎的一项基本社会保障制度。
　　
　　加大了对生活困难群众的救助和保障力度。对每月养老金低于75元的65岁以上农民实行了政府托底补贴，直接受益约30.3万人。实施了医保综合减负和市民社区医疗互助帮困计划，努力减轻市民的医疗费负担。扩大了农村合作医疗的覆盖面，基本做到应保尽保。调整了企业职工最低工资标准。提高了部分退休劳模生活待遇。加强社会救助与促进就业的联动，帮助部分困难家庭依靠劳动提高生活水平。扩大了廉租住房覆盖面，受益家庭累计达到1.35万户。加强养老设施建设，提高了为老服务的水平。
　　
　　切实加强社会管理和社区建设，“两级政府、三级管理、四级网络”体制进一步完善。双拥工作扎实推进。重视和改进信访工作，积极疏导和化解人民内部矛盾，加强社会治安综合治理，保持社会稳定和谐。
　　
　　各位代表，一年来各方面取得的成绩，确实来之不易。这是党中央、国务院和中共上海市委正确领导的结果，凝聚着全市人民的心血和汗水，得益于市人大、市政协的支持和监督。在此，我代表上海市人民政府，向在各个领域和岗位上辛勤劳动、无私奉献的全体上海人民，向给予政府工作积极支持的人大代表和政协委员，表示崇高的敬意和由衷的感谢！向各民主党派、工商联和社会各界人士，向中央各部门、兄弟省市和驻沪三军、武警部队，向关心和支持上海发展的香港、澳门特别行政区同胞、台湾同胞、海外侨胞和国际友人，表示诚挚的感谢！
　　
　　各位代表，我们清醒地看到，在前进道路上还面临许多困难和问题，政府工作还存在一些不足和薄弱环节。科教兴市主战略在有些地区、有些领域还有待进一步贯彻落实，自主创新能力还不够强。土地资源约束逐步加大、现代服务业发展相对滞后、社会事业发展活力相对不足等，已经成为影响当前经济社会发展的重要因素。全市房价涨幅虽然有所下降，但局部地区房价上涨仍然过快，房地产市场出现的一些新情况需要引起我们高度关注，动拆迁工作需要进一步依法规范推进。中心城区交通拥堵状况虽然得到一定缓解，但路车矛盾仍然比较突出，根本解决交通问题需要长期不懈地努力。同时，政府机关还不同程度地存在形式主义和官僚主义作风，政风行风建设中还有群众不满意的地方，政府自身建设和政府职能转变还要进一步加大力度。这些矛盾和问题，不仅影响上海当前发展，如果不及时有效地解决，也会影响上海长远发展。对此，我们要始终保持清醒的头脑，增强忧患意识和责任意识，高度重视，认真研究，切实加以解决。
　　
　　二、2005年主要任务
　　
　　今年是实施“十五”计划的最后一年，也是世博会建设全面推进的重要一年。我们要在以胡锦涛同志为总书记的党中央领导下，以邓小平理论和“三个代表”重要思想为指导，深入贯彻党的十六大、十六届三中、四中全会、中央经济工作会议和市委八届六次全会精神，全面落实科学发展观，深入推进科教兴市主战略，振奋精神，务实开拓，着力调整结构、提高经济增长的质量和效益，着力深化改革扩大开放、突破体制机制瓶颈，着力加强薄弱环节，注重维护经济安全，保持经济社会健康协调发展的良好势头，保持社会和谐稳定。
　　
　　全市经济和社会发展的主要预期目标是：全市生产总值增长11％左右，地方财政收入增幅略高于经济增长，城镇登记失业率4.5％左右，居民消费价格指数103，全社会研究与发展经费支出、环保投入相当于全市生产总值的比例分别达到2.4％、3％以上，万元生产总值综合能耗降到1.02吨标准煤以下，城市和农村居民家庭人均可支配收入分别增长10％和8％左右，全面完成“十五”计划，为“十一五”发展奠定良好基础。
　　
　　做好今年工作，要以科学发展观统领经济社会发展全局，以科教兴市主战略推动各方面工作，深入贯彻“两个第一”思想，在全社会进一步形成共识和合力，增强自主创新能力，促进经济社会全面协调可持续发展。
　　
　　在工作推进中，要把握好六个关键：
　　
　　注重经济结构调整，切实转变经济增长方式。贯彻“两个坚持”、“两个优先”的产业发展方针，加快产业结构优化升级，提高经济的整体素质和国际竞争力。扩大消费需求，保持投资、消费、出口协同增长，实现速度、结构、效益相统一。加大产业政策的聚焦力度，进一步发展优势产业、稳定均势产业、淘汰劣势产业。高度重视经济增长与资源、环境的协调，倡导有利于资源节约和保护生态环境的生产方式和消费方式，积极发展循环经济，建设资源节约型城市。
　　
　　注重深化改革和扩大开放，为经济社会发展注入活力。深化改革是解决经济社会发展中深层次矛盾和问题的治本之策。坚持“两个毫不动摇”，不失时机地推进各项改革，加强制度创新，力争在一些重点领域和关键环节实现新突破，充分发挥市场在资源配置中的基础性作用。抓住我国入世后过渡期的机遇，积极发挥浦东开发开放先行先试效应，在更大范围、更广领域、更高层次上参与国际竞争与合作，提高城市国际化水平。
　　
　　注重加强各项社会事业，促进经济社会协调发展。在加快经济发展的同时，进一步将政策支持和财政保障向社会事业倾斜，加快社会事业发展。加强分类指导和配套改革，引入市场竞争机制，增强社会事业发展的活力。进一步加强统筹规划，整合社会资源，促进城乡社会事业均衡发展。
　　
　　注重做好加快自身发展与主动服务全国两篇文章，为全国发展多作贡献。在实现“两个率先”的进程中，牢固树立“两个大局”思想，把上海未来发展放到全国发展的大局中来思考和谋划，按照优势互补、互利共赢、协调发展的原则，推动区域联动发展，实现共同发展、共同繁荣。
　　
　　注重解决民生问题，保持社会和谐稳定。坚持以人为本，更加重视改善人民生活特别是保障困难群众的基本生活，更加重视解决人民群众最关心的实际问题，更加重视加强社会管理和公共服务，推进社会管理体制创新，努力维护和实现社会公平，使广大人民群众从改革和发展中获得更多实惠。
　　
　　注重立足当前与着眼长远相结合，谋划好“十一五”发展。把握“十一五”时期上海发展的战略机遇和阶段特征，结合“十一五”规划编制，深入研究事关上海发展的全局性、战略性、关键性问题，为上海长远发展打下良好基础。
　　
　　今年我们要重点做好十方面工作：
　　
　　（一）推进产业结构优化升级，积极发展循环经济
　　
　　围绕增强城市综合服务功能，优先发展现代服务业，进一步提高服务业的质量和竞争力。实施《上海加速发展现代服务业实施纲要》，选择若干领域进行试点，放宽市场准入，打破行业垄断和部门分割，积极引进外资、民资，加快现代服务业发展。大力推进上海国际金融中心建设，积极支持货币、证券、期货等全国性金融市场发展，支持金融创新，积极配合国家金融监管部门，加大金融风险防范力度，促进金融保险业健康发展。依托深水港、航空港、信息港等功能性重大基础设施和全国性要素市场，大力发展现代物流、信息服务、专业服务等现代服务业，加快发展会展业、旅游业以及文化产业、创意产业。实施《上海商业发展行动方案》，提升发展商贸业。加强规划引导和政策聚焦，着力营造服务业发展的良好环境。
　　
　　坚持引进、消化、吸收与自主创新相结合，优先发展先进制造业。实施《上海优先发展先进制造业行动方案》，坚持以信息化带动产业升级，依托大基地、大企业、大项目、大品牌，进一步提升产业核心竞争力。着眼于提高技术含量、发挥规模优势，加快发展电子信息、汽车、石化、精品钢材等支柱工业。以电站成套设备和轨道交通设备等为重点，推动装备产业升级。加强与中央在沪企业联动发展，壮大船舶、航天、航空等战略产业。着眼于增强产业发展后劲，加快培育光电子、软件、现代生物医药、新材料等新兴产业，促进信息产业发展。同时，广泛运用高新技术和先进适用技术，改造提升传统产业。
　　
　　积极发展循环经济，努力建设资源节约型城市。制定节能、节水、资源综合利用等重点领域的专项规划，突出抓好土地、水、能源、重要原材料的节约和综合利用。加快制定鼓励节能降耗与资源综合利用的政策、法规和标准，促进资源节约利用、能源综合调控与产业政策相衔接，努力形成自觉节约资源、保护环境的机制和社会氛围。倡导清洁生产，探索资源利用循环化、资源消耗减量化的有效途径和方法。积极争取使上海成为国家发展循环经济试点城市，选择一批重点企业、领域和区域，开展多种形式的循环经济试点。
　　
　　（二）大力推进科技创新，积极推动城市信息化
　　
　　进一步落实《上海实施科教兴市战略行动纲要》，增强科技创新能力。加快推进公共服务平台建设，注重完善机制，发挥功能。制定科技发展中长期规划，拓宽“部市合作”的领域和范围，积极参与国家重大科技项目攻关和国家级实验室、国家级工程研究中心建设，加强基础性、应用性科技研究，占领高科技发展的制高点。进一步完善重大科技攻关项目筛选、实施及后评估机制，已启动项目要早出成效。进一步落实促进高新技术成果转化的政策，加快科研成果产业化进程。以企业为主体，加强产学研战略联盟，推动科研院所体制机制改革，完善科技创新机制，增强企业自主创新能力。贯彻落实《上海市实施人才强市战略行动纲要》，注重对各级各类人才的引进、培养和使用，优化高层次人才和创新团队建设的环境，充分激发人才的活力。继续加强知识产权工作，加大知识产权保护力度。继续推进科普教育基地建设。
　　
　　加强信息技术在经济社会各领域的广泛应用，充分发挥信息化对经济社会发展的推动作用。深入推进电子政务，促进各类政务信息资源的开发、整合、共享和利用。拓展社保卡、市民邮箱的服务功能，推进公共服务领域信息化。完善电子商务社会服务体系，促进企业信息化，继续推进银行卡应用。进一步完善城市地理信息系统基础数据平台，加快紧急处置、智能交通、土地房屋管理等信息系统建设，拓展空间地理信息的综合应用。加强信息基础设施规划，推进信息基础设施集约化建设，进一步提升超级计算中心、互联网络交换中心等功能性设施的服务能力。实行信息安全等级保护、信息安全测评等监管制度，加快应急防范中心等信息安全设施建设。进一步完善信息化政策、法规和标准，优化信息化发展环境。
　　
　　（三）着眼于经济社会协调发展，加快发展各项社会事业
　　
　　落实市教育工作会议精神，全面实施教育综合改革试验，加快推进教育现代化。继续深化素质教育，促进义务教育均衡发展，进一步减轻中小学生过重的课业负担。完善高校布局结构调整，继续加强重点学校和重点学科建设，加快研究生教育发展，注重提高培养质量，形成办学特色，促进高校内涵发展。以复旦大学百年校庆为契机推动杨浦知识创新区发展，加快闵行紫竹科学园区发展。坚持面向社会、面向就业市场、面向知识型技能人才培养，加快职业教育发展。建立更加灵活开放的继续教育体系，充分利用现代信息和网络技术发展继续教育。完善终身教育体系，推进学习型城市建设。促进民办教育健康发展。进一步扩大教育开放，加快国际合作办学，积极发展留学生教育。
　　
　　落实市文化工作会议精神，推进文化体制改革和文化事业发展。实施市文化发展规划纲要和文化设施总体规划，建设若干社区文化活动中心、图书馆等公益性文化设施，推进一批功能性文化设施项目建设。鼓励文学艺术创作，积极开展群众文化特色活动，丰富群众精神文化生活。建设规范有序的文化市场。以新闻出版业、影视传媒业、互联网内容服务业等为重点，加快发展文化产业。繁荣发展哲学社会科学，为上海现代化建设提供科学理论支撑。
　　
　　坚持预防为主的方针，加强公共卫生，全面完成公共卫生体系建设三年行动计划和健康城市建设三年行动计划。充分发挥市公共卫生中心的医、教、研一体化基地功能。完善市、区（县）疾病预防控制中心运行机制，优化重大传染性疾病的预警监测、预防控制体系，进一步提高公共卫生应急处置能力。完善区域卫生规划，实行市级医疗机构管办分离，强化对医疗的全行业管理。鼓励多元办医，促进中外合资合作办医。推进群众体育运动，开展全民健身活动，增强人民群众健康素质。加强竞技体育，办好第48届世乒赛等重大体育赛事。
　　
　　深化事业单位改革。坚持总体规划、分类指导、配套改革、稳妥推进的原则，根据事业单位的不同性质和功能，推进事业单位分类改革，逐步使行政执行类事业单位过渡为行政事务执行机构，经营服务类事业单位转制改企，社会公益类事业单位激活运行机制。
　　
　　进一步加强精神文明建设。以实施迎世博文明行动计划为载体，丰富和实践上海城市精神。广泛深入地开展诚信教育、法制教育。继续实施公民道德建设纲要，大力弘扬社会公德、职业道德、家庭美德，加强未成年人思想道德建设，完善文明创建长效机制，提高市民综合素质和城市文明程度。
　　
　　（四）全力推进世博会筹办工作，加强城市现代化基础设施建设
　　
　　认真做好世博会筹备工作。完成世博会法定注册程序。坚持办展与后续利用相结合的原则，继续深化世博园区实施规划，推动世博园区动拆迁等前期开发工作，加快推进世博会重大项目建设。继续优化黄浦江两岸重点地区岸线规划，增加滨江公共活动空间，完成外滩风貌延伸段建筑立面整治，加快推进黄浦江两岸重点地区开发建设。
　　
　　继续加快枢纽型、功能性、网络化重大基础设施建设。全面推进上海国际航运中心建设，按期建成洋山深水港区一期工程和东海大桥工程并投入运营，完成长江口深水航道整治二期工程，显著提升国际航运中心功能和能级。加快上海航空枢纽建设，建成浦东国际机场第二条跑道，推进第二座航站楼建设。完善对外交通与市内交通的衔接，提高城市交通运输整体效能。大力加强轨道交通基本网络建设，积极创造条件新开工一批轨道交通项目。基本建成市域高速公路网。加快推进一批黄浦江越江工程建设，建成翔殷路越江隧道。建设上海长江隧桥工程。加强内河航道规划和建设，优化水系景观，充分发挥内河水网在航运、生态、景观建设中的作用。加快电力和液化天然气项目建设，增强能源保障能力。
　　
　　继续加强房地产市场调控，保持房地产市场平稳健康发展。坚持以居住为主、以市民消费为主、以普通商品住房为主的调控原则，加大配套商品住房建设力度，扩大普通商品住房供应量，适应广大市民的住房需求，努力实现供求总量基本平衡、供应结构不断优化。完善房地产市场调控措施，满足消费，规范投资，抑制投机。积极发展房屋租赁市场，探索建立面向低收入家庭的住房租赁新机制。进一步完善住房保障体系，继续实行公有住房低租金制度，扩大廉租住房受益面，加快综合“平改坡”及旧房成套化改造。保持合理的动拆迁规模，落实动迁房源，重点确保轨道交通、世博园区、成片二级旧里以下地块的动拆迁。完善落实动拆迁的公示、信访接待、承诺书、举报和监管五项工作制度，确保动拆迁公开公正、透明规范，依法做好动拆迁工作。实施严格的保护制度，加强历史文化风貌区和优秀历史建筑保护，努力保护上海历史文化遗产。
　　
　　（五）加强环境保护和生态建设，进一步提高城市现代化管理水平
　　
　　全面完成第二轮环保三年行动计划。按照“在全面推进中重治本、在综合治理中重机制、在资金投入上重实效”的原则，突出重点项目、重点领域、重点地区，进一步加大污染治理和生态环境建设力度，整体提高上海生态环境质量。围绕把上海建成生态型城市的目标，高标准、高起点编制第三轮环保三年行动计划。加强崇明岛规划控制、土地控制和生态保护，加大政策支持力度，积极推进崇明生态岛建设。
　　
　　大力实施“公交优先”交通发展战略，坚持“远近结合、建管并举、标本兼治”原则，将交通发展长期战略、中期目标和近期计划有机结合起来，切实加强交通排堵保畅工作。继续加大中心城区道路交通设施建设力度，拓宽、疏通次干道和支路，完善中心城区路网系统，推进交通换乘枢纽、停车场和公交专用道建设，采取有效措施控制交通流量过快增长。加强交通文明的宣传教育，整治乱停车、乱占路、乱穿马路等不文明行为，依法加大交通执法和违章处罚力度。
　　
　　进一步加强规划和土地管理。深入贯彻市规划工作会议精神，严格执行“双增双减”要求，加强规划重大问题的研究，加快各类规划编制，加强规划执法，充分发挥规划对城市建设的指导作用。积极推进城市雕塑规划和建设。加强地下空间利用规划，有序开发利用地下空间。按照建立最严格的土地管理制度的要求，加强土地规划和计划管理，加大国土资源执法监察力度，细化“批项目、核土地”制度，制定各行业用地标准和开发区项目准入标准，严格土地管理，促进集约节约用地。
　　
　　坚持“建管并举、重在管理”的方针，提高城市管理水平。进一步推进市容环卫行业改革，促进市容环卫作业服务市场化，全面加强市容环境综合建设和综合治理，保持良好市容市貌。深化城市交通、水务领域改革，依法强化行业管理。完善安全生产监管体制和机制，切实加强安全生产工作。进一步完善灾害事故紧急处置预案体系，增强重大突发事件和灾害性天气的应急处置能力，提高城市灾害综合管理水平。
　　
　　（六）不失时机深化经济体制改革，着力突破体制机制瓶颈
　　
　　深化国资国企改革。按照多种模式、分类指导的原则，基本完成国有和国有控股公司股权多元化改造，培育和发展具有核心竞争力的大企业集团，加快中小企业改制重组。促进本地上市公司提高质量。建立健全科学的资产评估体系、公开的交易制度和规范的决策机制，充分发挥产权市场的作用，推动国有资产有序流动，进一步推进国有资本向优势产业和关键领域集中，增强国有经济的控制力。实施对国有资产的分类监管，完善国资监管的制度规范。探索完善国有企业分配机制。
　　
　　大力发展非公有制经济。按照“平等待遇、开放领域、引导产业、调整结构、创新服务”的思路，在投融资、税收、土地使用、项目招标等方面逐步实现各种所有制一视同仁。鼓励和支持非公有制经济参与国有企业的改制改组改造，鼓励和引导社会资本参与基础设施和公用事业项目的建设和运营。建立促进非公有制经济发展的社会服务体系，营造鼓励创业、扶持中小企业发展的良好环境。
　　
　　深化投资体制改革。贯彻国务院投资体制改革决定，制定本市深化投资体制改革的实施意见和配套措施，改革项目审批制度，进一步落实企业投资自主权，加强政府投资管理。
　　
　　继续推进财税体制改革。有序扩大“税收属地征管、地方税收分享”体制改革目标模式的实施区域，基本完成税收征管机构的调整和整合。实施预算外资金收缴分离，规范和强化预算管理，加强财税监督。均衡公共保障，加大对财力薄弱区县的财政转移支付力度。
　　
　　坚持标本兼治，进一步规范市场经济秩序。以拓展信用产品应用为重点，加快社会诚信体系建设。在政府采购、项目招投标等领域，加快信用信息归集，建立完善信用产品使用制度。加强信用法规建设，积极探索建立失信惩戒机制，规范和发展征信服务业。继续加大对市场经济秩序的整顿力度，突出食品、药品安全监管，重点整治损害人民群众生命安全和身体健康、给经济社会发展造成重大危害、给人民群众造成重大经济损失等三类问题。发挥消费者组织的社会监督作用，保护消费者合法权益。
　　
　　（七）深入推进浦东开发开放，进一步提高上海对外开放和服务全国的水平
　　
　　浦东新区要继续在制度创新和扩大开放等方面走在前列。抓住国际产业特别是服务业加快转移的机遇，强化重点功能区域的集聚辐射效应，努力把浦东新区建设成为上海“四个中心”的核心功能区。继续实施“聚焦张江”战略，在产业功能升级、研发功能强化、孵化功能完善等方面取得新突破。
　　
　　提高利用外资的质量和水平。大力发展“总部经济”，继续把跨国公司作为吸引外资的重点，使上海成为跨国公司生产制造基地、地区总部、研发机构和采购中心的集聚地之一。扩大服务贸易对外开放，加快引进国际服务业大公司和知名品牌。注重加强服务，努力营造公平、公正、公开的市场竞争环境，促进国资、外资、民资共同发展。同时，大力实施“走出去”战略，发挥比较优势，积极开发利用国外资源和国际市场，培育我们自己的跨国公司和国际品牌。进一步办好重要国际会议和重大涉外活动，推动国际经贸、科技和文化交流。
　　
　　增强上海的口岸功能。发挥外高桥“区港联动”的政策效应，深化“大通关”工程，推动电子口岸建设，整合口岸资源，理顺地方口岸管理体制，进一步发挥上海的口岸优势。优化外贸结构，促进加工贸易转型升级，提高出口产品质量、档次和附加值，扩大高新技术产品和机电产品出口，发挥出口加工区作用，开拓多元化市场。积极发展国际服务贸易。建立健全应对国际贸易摩擦的工作机制，善于运用国际通行规则发展和保护自己。
　　
　　发挥上海综合服务功能，更好地服务长江三角洲、服务长江流域、服务全国。按照国家统筹区域发展的总体部署，加强与长江三角洲其它地区的合作，与沿江省市共同推进长江“黄金水道”的功能开发，积极参与西部大开发和东北等老工业基地振兴，探索建立多层次、多形式的合作新机制。进一步做好对口支援工作，重点推进扶贫开发、加强经济协作、支持社会事业发展。深化落实沪港经贸合作。
　　
　　（八）促进中心城区与郊区协调发展，加快城乡一体化进程
　　
　　坚持实行分类指导、差别政策，加强区域统筹发展。进一步明确区县功能定位，立足区县各自优势，加强对区县产业发展的规划引导和政策引导。增强区县整合区域资源的能力，充分发挥区县在全市经济社会发展中的重要作用。
　　
　　加快推进“三个集中”。积极稳妥地推进宅基地置换试点，合理归并农村自然村落和居民点，引导农民居住向城镇集中。完善工业区发展政策和机制，加快工业向园区集中，把郊区建设成为先进制造业的重要基地。加强郊区基础设施建设，加快郊区试点城镇和小城镇发展，发挥郊区城镇在集聚人口和发展产业中的作用。
　　
　　稳步提高农民收入。按照“多予、少取、放活”的方针，探索建立农民长期利益保障机制，努力稳定农民经营性收入，增加农民非农就业收入，提高农民保障性收入，维护农民财产权益性收入，促进农民持续增收。坚决实行最严格的耕地保护制度，切实稳定粮食生产，大力发展都市农业，发挥都市农业的经济、生态、服务功能，扎实推进农业现代化。
　　
　　加快郊区社会事业发展。优化整合资源，加快郊区薄弱学校的改造建设，扩大对农村新增劳动力和离土农民的职业技能培训。加强郊区农村文化设施和医疗卫生服务体系建设，提高农村社会事业发展水平。
　　
　　继续提升中心城区综合服务功能。加强产业发展导向，充分发挥中心城各区的优势，完善规划，聚焦政策，加快建设若干各具特色的现代服务业集聚区。着眼于拓展就业渠道，鼓励中心城区发展都市产业。增加公共空间和绿地，优化中心城区发展环境。
　　
　　（九）积极推进社区建设，进一步加强社会管理
　　
　　按照社区建设实体化、社区管理网格化的要求，积极推进社区建设试点，建设管理有序、服务完善、环境优美、文明祥和的新型社区。充分发挥“两级政府、三级管理、四级网络”体制的作用，实施管理重心下沉，提高管理效率，增强基层发展活力，让人民群众在社区发展中得到实惠。强化街道办事处的社会管理和公共服务职能，进一步发挥居委会群众性自治组织的作用，促进社区公共资源整合。加强社团管理。探索建立义工服务制度，推动志愿者活动蓬勃开展。
　　
　　进一步加强人口综合调控。优化人口结构和布局，引导中心城区人口向郊区疏解。完善居住证制度和房屋租赁管理制度，坚持重心下移，条块结合，以块为主，依托社区，加强外来人口属地化管理。保障外来务工人员的合法权益。稳定低生育率水平，进一步做好优生优育工作，大力提倡婚前体检，提高出生人口素质。切实保障妇女儿童的合法权益，促进女性平等就业，加强青少年保护。
　　
　　维护社会稳定。进一步完善化解人民内部矛盾的工作机制，加强和改进信访工作，落实职能部门维护社会稳定的工作责任制。运用多种方式化解矛盾，妥善处理、逐步解决人民群众关心的历史遗留问题。加强社会治安综合治理，依法打击各类刑事犯罪活动，切实保障人民群众的生命财产安全。
　　
　　（十）切实关心人民群众生产生活，努力构建和谐社会
　　
　　实施积极的就业政策。努力通过发展经济来扩大就业，把产业政策与就业政策结合起来，将政府促进就业的重点转到鼓励创业、引导就业上来，形成经济增长带动就业增长的良性机制。完善落实鼓励创业的各项政策，培育和扶持创业带头人，在小额贷款担保、创业培训等方面给予更多的资助，为中小企业和微小型企业创造有利的发展环境，发挥创业促就业的作用。继续推进多层次的职业培训，加快职业公共实训基地建设，着力提高就业困难人员的就业能力。继续推进“万人就业项目”，坚持以区县为主、以服务类项目为主、以安置就业困难人员为主，在操作实施上进一步把权、责下放到区县，形成能进能出的用人机制。规范企业裁员行为，控制岗位流失。加强劳动力市场监察，保护劳动者合法权益。
　　
　　进一步完善社会保障体系。继续完善城镇职工基本养老保险制度。推进小城镇社会保险制度，进一步扩大覆盖面，重点解决征用地农民的社会保障问题。深化“三医联动”改革，完善医保购买服务和监督管理机制，规范基本医疗服务行为。进一步推进社区卫生服务改革试点，加快门诊医疗服务重心下沉社区，切实强化社区卫生服务中心的综合服务功能。推进药品流通体制改革，结合医疗、医保改革，努力降低虚高药价。巩固和完善农村合作医疗制度，逐步提高农民医疗保障水平。完善社会救助政策，切实保障困难群众的基本生活，引导有劳动能力的困难群众通过积极就业改善生活。
　　
　　充分发挥工会、共青团、妇联等人民团体的桥梁和纽带作用。做好民族、宗教、侨务和对台工作。进一步做好拥军优抚安置工作，增强全民国防观念。
　　
　　积极发展社会福利事业，完善鼓励社会力量兴办养老设施的扶持政策，动员社会资源发展多样化养老服务，改善老年人物质和精神生活。做好2007年特奥会筹备工作。推进无障碍设施建设，提高残疾人保障水平，为残疾人平等参与社会创造条件。大力支持和促进社会慈善事业发展，在全社会提倡团结互助、扶贫济困的良好风尚，形成平等友爱、融洽和谐的社会氛围。
　　
　　三、转变政府职能，推进依法行政，努力建设服务政府、责任政府、法治政府
　　
　　按照执政为民的要求，努力建设服务政府、责任政府、法治政府，是本届政府致力追求的目标。两年来，我们按照这一目标，突出强调转变政府职能、推进依法行政、加强制度建设。在新的一年，要按照十六届四中全会提出的加强党的执政能力建设的要求，坚持科学执政、民主执政、依法执政，切实加强政府自身建设。
　　
　　第一，深入推进政府职能转变。要依法全面履行职能，在继续完善经济调节，加强市场监管的同时，更加注重加强社会管理和公共服务。
　　
　　着眼于增强企业活力，进一步理顺政府与企业的关系。抓住当前矛盾比较突出的部门、群众意见比较集中的领域，加快政企分开、政事分开、管办分离，进一步放开政府不该管、管不了的事情，由直接管理向间接管理转变，真正确立企业的市场主体地位。继续简化行政审批程序，改进行政审批方式，加强监管，不断提高行政服务效率，努力为企业创造良好的发展环境。
　　
　　着眼于充分发挥市场在资源配置中的基础性作用，进一步理顺政府与市场的关系。完善统一、开放、竞争、有序的现代市场体系，全面提升要素市场能级，促进市场竞争和要素自由流动。按照在规范中发展、在发展中规范的原则，进一步推动中介组织、行业协会的改革和发展，使行业协会真正成为企业自律组织。
　　
　　着眼于维护社会公平，促进社会和谐，进一步理顺政府与社会的关系。切实加强社会管理和公共服务，把政府工作的重点、政策支持的重点、财力保障的重点进一步向社会事业发展倾斜，向公共基础设施建设倾斜，向生态建设、环境保护倾斜，向扩大就业、完善社会保障体系、改善困难群众生活倾斜。
　　
　　第二，全面推进依法行政。要认真贯彻落实国务院颁布的《全面推进依法行政实施纲要》，按照法定权限和程序行使权力，履行职责。所有政府工作人员都要学会并善于依法处理经济社会事务。
　　
　　严格贯彻实施《中华人民共和国行政许可法》。这是规范政府行为的一部重要法律，各级政府必须认真执行。要以贯彻实施行政许可法为契机，对一些长期沿袭的政府不该行使的职能、一些长期习惯的与市场经济要求不相适应的政府管理方式、一些长期存在的体制性障碍和瓶颈问题，实行根本性的改革。去年，我们按照实施行政许可法的要求，开展了相关清理工作，取消了本市设立的行政许可事项102项，占总数的50％。同时，制定和落实调整措施，防止行政许可事项取消后出现管理“真空”。今年，要组织开展对行政许可法实施情况的监督检查和评估，继续清理与行政许可相关的收费项目，减少行政许可事项，落实行政许可设定、实施和监督检查等相关配套制度，加强后续管理。
　　
　　积极推进政府信息公开。去年，我们制定并实施了《上海市政府信息公开规定》，重点推进15家公权力大、公益性强、公众关注程度高的部门依法向社会公开信息，进一步增强行政透明度。今年，要拓宽政府信息公开的范围，加快建立监督、评议制度，完善便民利民的公开渠道，进一步完善政府部门新闻发言人制度，继续推动政府信息公开全面规范、健康有序地开展。认真做好经济普查工作，为宏观决策提供科学依据。
　　
　　进一步完善综合执法体制。以推进文化市场、城市管理、经济领域的综合执法为重点，建立完善权责明确、行为规范、监督有效、保障有力的执法体制，促进严格执法、公正执法、文明执法。去年，我们按照国家的统一要求，完善文化领域综合执法，加强文化市场监管；加快推进城市管理领域综合执法，从原来的10个区试点扩大到全市所有区县。今年，要进一步完善综合执法体制，推进市级层面城市管理综合执法，适当扩大文化和城市管理领域综合执法范围，探索建立覆盖食品流通和消费环节的综合性、专业化食品安全监管体制，整合执法资源，完善执法程序，规范执法行为。
　　
　　第三，继续完善政府工作制度和运作机制。政府运作既要规范，又要高效。要在严格按照科学程序办事的基础上，建立健全科学民主的决策机制、规范有序的执行机制、公正透明的监督机制，切实把政府工作纳入制度化、规范化轨道。
　　
　　完善公众参与、专家论证和政府决策相结合的决策机制。近两年，我们作了一些积极探索，对重大规划、重大项目、重大政策等，广泛听取市人大代表、市政协委员和社会各界人士的意见，认真组织专家论证；对与群众利益密切相关的公用事业价格调整等，实行听证制度。今年，要进一步健全重大决策的规则和程序，加快建立和完善重大问题集体决策制度、专家咨询制度、社会公示和社会听证制度、决策责任制度。所有重大决策，都要在深入调查研究、广泛听取意见、充分进行论证的基础上，由集体讨论决定。这要作为政府的一项基本工作制度，长期坚持下去。同时，要建立健全决策后评估机制，及时调整和完善有关决策，不断提高决策的科学化、民主化水平。
　　
　　完善责任与权力相统一的执行机制。坚持权力必须与责任挂钩，健全政府工作责任制，切实做到有权必有责、用权受监督、侵权要赔偿、违法须追究。坚持和完善政府内部分工负责、合力推进的工作方法和工作机制，有力、有序、有效地推进政府各项工作。
　　
　　完善全方位的监督机制。政府的一切权力都是人民赋予的，必须对人民负责，为人民谋利益，接受人民监督。我们要坚持定期向市人大常委会通报重要工作情况的制度，完善联系沟通机制，自觉接受市人大及其常委会的监督；及时向市政协通报重要工作，接受人民政协的民主监督，认真听取民主党派、工商联、无党派人士和各人民团体的意见；接受新闻舆论和社会公众监督；重视人民群众通过行政复议、行政诉讼等法定渠道，对政府机关及其工作人员进行监督。同时，要注重加强政府内部监督，支持监察、审计部门依法独立履行监督职责，围绕政府重点工作和群众关心的热点问题，认真开展执法监察、效能监察和审计监督。
　　
　　第四，加强政风建设和公务员队伍建设。弘扬求真务实精神，树立科学发展观和正确的政绩观，坚持执政为民、从严治政，当好人民公仆，切实做到权为民所用、情为民所系、利为民所谋。
　　
　　坚持一切从实际出发，按客观规律办事，各项工作都要经得起实践的检验，经得起群众的检验，经得起历史的检验。切实改进工作作风，精简会议，减少文件，把更多的时间和精力用于深入基层，调查研究。
　　
　　坚持“标本兼治、综合治理、惩防并举、注重预防”的方针，加强廉政建设和反腐败斗争，建立健全教育、制度、监督并重的惩治和预防腐败体系。紧紧抓住损害群众切身利益的突出问题，切实纠正部门和行业不正之风。
　　
　　努力建设一支政治坚定、业务精通、清正廉洁、作风优良的公务员队伍。遵守宪法和法律，加强学习，努力提高政治素养、业务能力和依法行政水平。忠于职守，乐于奉献，勤俭节约，继续保持谦虚谨慎、不骄不躁和艰苦奋斗的作风。脚踏实地，真抓实干，继续保持知难而进、迎难而上的精神状态，把各项工作落到实处。全体政府工作人员、特别是各级领导干部要深怀爱民之心，恪守为民之责，善谋富民之策，多办利民之事，不断增强解难题、破瓶颈、办实事的能力，通过一桩桩、一件件扎扎实实的工作，充满感情、千方百计、全力以赴把广大人民群众的利益维护好、实现好、发展好。
　　
　　各位代表！
　　
　　新的一年，面对新形势、新任务、新要求，我们深感肩负的责任重大而光荣。人民群众对政府的信任和支持，给了我们无穷的力量和必胜的信心。我们要紧密团结在以胡锦涛同志为总书记的党中央周围，高举邓小平理论和“三个代表”重要思想伟大旗帜，在中共上海市委的领导下，紧紧依靠全市人民，在率先全面建设小康社会、率先基本实现现代化，把上海建设成为国际经济、金融、贸易、航运中心之一的伟大征程中，迈出新步伐！

Posted by: Timsos Yesterday, 10:46 PM

Report on the Work of the Government


at the Third Session of the Twelfth Shanghai Municipal People’s Congress on January 18, 2005


Han Zheng
Mayor of Shanghai



Fellow deputies,

On behalf of the Shanghai Municipal People’s Government, I will now present to the Congress a report on the work of the Government for your review and for comments from the members of the Shanghai Municipal Committee of the Chinese People’s Political Consultative Conference (CPPCC) and other nonvoting delegates.

I. Review of the Government’s Work in 2004

The past year was an important one for Shanghai, as we embraced and put into practice a scientific concept of development, resolutely carried out the Central Government’s macro-economic control policies, vigorously implemented the strategy of revitalizing the city through science and education and promoted steady, sound and coordinated economic and social development. Under the leadership of the Central Committee of the Communist Party of China (CPC), the State Council and the CPC Shanghai Municipal Committee and under the guidance of Deng Xiaoping Theory and the important thought of Three Represents, all levels of government and the entire people of Shanghai worked together to put into practice the spirit of the Sixteenth CPC National Congress, the Third and Fourth Plenary Sessions of the Sixteenth CPC Central Committee and the Fourth and Fifth Plenary Sessions of the Eighth CPC Shanghai Municipal Committee. Through pioneering and down-to-earth work, we achieved all of the goals and targets set by the Second Session of the Twelfth Shanghai Municipal People’s Congress.

? Stable and sound economic growth was maintained. Shanghai’s GDP in 2004 grew to 744 billion RMB yuan, representing a 13.5% increase over the previous year calculated at constant prices, and making 2004 our thirteenth consecutive year of double-digit growth.*
? Rapid growth in fiscal revenue was achieved. The municipality’s fiscal revenue grew by 24.5% year on year.
? Investment in R&D and in environmental protection was increased. Total investment in R&D and in environmental protection was equivalent to 2.29% and 3.03% of GDP respectively.
? Employment promotion targets were achieved. A total of 608,000 new jobs were created. The urban registered unemployment rate decreased to 4.5%, the first drop in the past decade.
? Prices were kept stable. Consumer prices increased by 2.2% over the previous year.
? Urban and rural incomes were raised. The per capita disposable income of urban households and rural households grew by 12.2% and 10.2% respectively, the latter representing the largest increase since 1997.

Over the past year, we mainly carried out the following work:

We successfully maintained stable and healthy economic growth by implementing the Central Government’s macro-economic control policies. Aligning our thinking with the Central Government’s sound judgment of the economic situation and our actions with its macro-economic control policies and overall arrangements, we implemented the Central Government’s macro-economic control policies in a comprehensive, faithful and vigorous manner in accordance with Shanghai’s situation. Our resolve was firm, our measures effective, and our achievements significant.

We improved the quality and efficiency of the economy by combining the implementation of the Central Government’s macro-economic control policies with Shanghai’s economic restructuring drive. We implemented an action plan to accelerate the development of the modern services industry. This contributed to rapid recovery in the tertiary sector, which added 4.9 percentage points to its 2003 growth rate. We also formulated an action plan to stimulate the advanced manufacturing sector, and pushed ahead with the development of a number of industrial bases and key projects. This contributed to a 16.1% increase in the city’s industrial added value over the previous year, with the hi-tech sector accounting for 28.2% of total industrial output, and the profit of industrial enterprises surpassing 100 billion RMB yuan. We put into practice the spirit of the“No. 1 Document”on improving farmers’livelihoods jointly issued by the CPC Central Committee and the State Council by implementing policies to increase grain production and raise farmers’incomes. We adopted proactive measures to address the tight supply of coal, electricity, oil and transportation capacity, and thus ensured the normal functioning of the city for industry and residents alike. We worked actively on optimizing the structure of demand and promoted balanced economic growth driven by investment, consumption and export. To ensure healthy development of the property market, we capped demolition and relocation, accelerated the development of medium- and low-priced commercial housing and restricted the resale of forward delivery housing.

We achieved better coordination between sustained economic growth and the efficient use of resources by combining our implementation of the Central Government’s macro-economic control policies with institutional innovation. Shanghai implemented the Central Government’s strictest-ever arable land protection regime, strengthened land-use planning and management, scrapped or consolidated a number of development zones, initiated a system of“land use verification before project approval”, and put in place regulations for the administration of land reserves. We aligned industrial policy with energy policy, and phased out a number of enterprises and products with high consumption of energy and raw materials.

We kept investment growth in step with economic growth by combining our implementation of the Central Government’s macro-economic control policies with efforts to optimize the structure of investment. We strictly rescrutinized fixed asset investment projects, keeping or dropping projects based on their individual merits and giving priority to World Expo-related initiatives, industrial upgrading projects and investments in energy, transportation, environmental protection and the social sector. We thereby ensured an appropriate level of investment growth and more optimal allocation of investment. At the same time, we worked closely with the national financial regulatory agencies to strengthen credit management, to control and mitigate financial risks, and to promote the healthy development of the financial sector.

We safeguarded market order and maintained price stability by combining our implementation of the Central Government’s macro-economic control policies with strengthened market regulation. We put in place policies to ensure sufficient grain production and supply, and improved the modalities of our cooperation with Jilin, Heilongjiang and other provinces for the production and purchase of grain, so as to ensure adequate supply at stable prices. Market monitoring of key commodities was strengthened. Focusing on food and medicine safety, we stepped up our efforts to rectify and standardize market order.

We forged ahead with reforms to promote scientific and technological innovation and comprehensive development of the social sector. We helped scientific and technological innovation pick up speed by implementing Shanghai’s Plan of Action for Revitalizing the City through Science and Education. We improved the environment for innovation by building public service platforms, with the R&D public service platform already producing tangible results. We launched Shanghai’s first set of major applied research projects, aimed at finding solutions to technology bottlenecks in industry, and we elaborated policies to accelerate the commercialization of research outputs. From among the national-level major applied research projects established by the Ministry of Science and Technology, we identified areas for“Ministry-Municipality Research Cooperation”based on Shanghai’s priorities for economic and social development. We implemented an Intellectual Property Rights (IPR) strategy for Shanghai, strengthening our work in the IPR field. In addition, we worked hard to attract high-caliber human resources from home and abroad to build up a critical mass of returned graduates of foreign universities, and to both import and train locally professionals whose skills are in short supply.

We further reformed and developed our education system. Leveraging the momentum of the Municipal Education Conference, we mapped out a strategy for Shanghai’s education modernization process on the basis of in-depth research. Our strategy emphasizes an integrated approach to education reform and clearly spells out measures and targets for reforming and developing all types of education at all levels. We promoted the balanced development of compulsory education by reducing the excessive workload of primary and secondary school students and improving the facilities and quality of instruction in public primary and secondary schools in the ex-urban areas. While continuing to optimize the geographical distribution of higher education institutions (HEIs), we made further progress in building key disciplines in Shanghai’s HEIs and we implemented post-graduate education reforms. We accelerated the development of vocational education, in line with the requirements of the job market, and basically achieved our target of having one hundred well-developed secondary vocational schools in Shanghai.

In culture and the arts, our continued institutional reforms contributed to more rapid development and to a more prosperous and productive year. In 2004, Shanghai successfully hosted a number of important cultural and sporting events, including the China Shanghai International Arts Festival and Formula One Chinese Grand Prix. A number of new museums, popular science centers, community cultural facilities, fitness facilities were completed, and a host of public cultural events and fitness-for-all activities were organized across the city. Shanghai athletes performed brilliantly at the Athens Olympic Games. Our“Be a Courteous and Considerate Shanghainese”campaign promoted respectful behavior and civility citywide.

In the area of public health, we made enormous efforts to implement our three-year plans for developing Shanghai’s public health system and for building a healthy city. We built and put into operation a Municipal Public Health Center and a new laboratory building for the Municipal Center for Disease Prevention and Control. We increased investment in public health and in the prevention and control of communicable diseases, boosting per capita expenditure on preventive health services. We made free treatment available to tuberculosis patients and conducted free immunization programs for the children of migrant workers. We launched pilot projects to test new delivery models for community health services and upgraded 40 town/township clinics to meet defined standards, in order to strengthen health services at the community level and in the ex-urban areas. We also took strict measures to effectively curb SARS and highly pathogenic bird flu.

We improved Shanghai’s infrastructure and urban management, scaling up hubs, networks, functionality and environmental protection. Construction of the Yangshan Deepwater Seaport (Phase 1) progressed rapidly, with milestones in the construction of the port area, Donghai Bridge and the New Harbor City completed on schedule. We also made rapid progress on other major infrastructure projects, including the second phase of Pudong International Airport, the urban rail network, the expressway network, the Central Ring Road and the Shanghai South Railway Station. The Fuxing Road East Tunnel was completed and opened to traffic. The Shanghai section of the West-East Gas Pipeline Project and the second phase of the Waigaoqiao Power Plant were also completed. We further integrated our information infrastructure and enhanced the comprehensive service capacity of functional facilities.

Preparations for the World Expo 2010 entered full swing. Under the direct leadership of the State Council, an Organizing Committee and Executive Committee were established for the World Expo 2010 in Shanghai, China. The Registration Report of the World Expo 2010 Shanghai China was completed and is ready for submission. We zoned off the Expo site and made good progress in site planning and design. We tightened control over the development of land on the banks of the Huangpu River, and stepped up the development of key areas.

We took practical steps to improve urban management, focusing on enhancing city planning and tackling traffic congestion. The initiatives outlined at the Municipal Urban Planning Conference were translated into action. In the city’s central districts, we created more public space and green area and reduced both plot ratios and the total number of buildings (the“Two More, Two Less”Strategy). New construction projects were subjected to stricter regulation. In a major effort to reduce traffic congestion, we added infrastructure, stepped up control over traffic flows, and beefed up enforcement of traffic rules. Urban sanitation and environmental upkeep services underwent further market-oriented reforms, and the appearance of the city further improved as a result. The city was also better equipped to deal with disasters thanks to a new Emergency Response Coordination Center that was put into now in operation.

We spared no effort in our implementation of the city’s second Three-Year Plan of Action for Environmental Protection. Our ability to control water pollution improved with the addition of the Zhuyuan and other sewage treatment facilities. The city’s air quality improved as we switched to cleaner energy and enhanced dust pollution control. We closed down a number of heavily polluting production lines and enterprises, and made significant progress in the environmental clean-up of the Wusong and Taopu Industrial Zones. In order to reduce animal pollution, livestock and poultry farms in prohibited zones were shut down. A total of 1,240 hectares of new public green area were added to the cityscape. Our efforts to have the Dongtan Marsh in Chongming and Jiuduansha Island in Pudong listed as National Nature Reserves made headway, with positive evaluation results obtained from the State Review Committee on National Nature Reserves.

We forged ahead with reform and opening-up by making breakthroughs in institutional and procedural innovation. In the area of state-owned enterprises and state-owned assets, we pressed forward with reforms in an active yet prudent fashion. A number of state-owned holding companies and large enterprise groups, such as Shanghai Electric, Shanghai Nong Gong Shang Group, Shanghai International Port Group and Shanghai Automotive Industry Corporation (SAIC) were successfully restructured; and Shanghai Light Industrial International Group was streamlined through divestiture of its smaller subsidiaries. A new regulatory framework for state assets and SOE reform improved how regulatory oversight is exercised. Baosteel Group and SAIC made it into the Fortune Global 500. Our efforts to encourage non-public enterprises to participate in the restructuring of SOEs boosted the development of the non-public sector of our economy. We initiated reforms in the fiscal and taxation system, consolidating tax collection and administration agencies. We actively pressed ahead with the establishment of a credit system, with the official implementation of Shanghai’s Interim Measures on Personal Credit Information Collection and Management catalyzing the development of credit services.

We continued to support pioneering development and opening-up initiatives in Pudong. The functional infrastructure and favorable policies we put in place there helped Pudong attract a critical mass of both overseas and domestic financial institutions as well as regional headquarters and R&D centers of multinational corporations. A pilot project to strengthen synergy between the Waigaoqiao bonded area and port was carried out, so as to capitalize on Shanghai’s competitive advantages as a port city. Electronic customs clearance was also upgraded at Shanghai’s points of entry as an important trade facilitation measure. The total value of imports and exports that flowed through Shanghai in the last year reached 282.58 billion US dollars, more than one quarter of China’s total, and container throughput totaled 14.554 million TEUs. The Central Government’s policy on export tax rebates was put into effect, generating new growth areas in exports. The city’s exports in 2004 hit 73.52 billion US dollars, up 51.6% over the previous year. Within Shanghai’s exports, the proportion of hi-tech products and electrical machinery continued to increase. By offering better services, improving the investment climate and opening new sectors to foreign direct investment (FDI), Shanghai not only attracted more FDI but also made better use of investment inflows. In the year 2004 alone, actual paid-in FDI totaled 6.54 billion US dollars, for an 11.8% increase year on year. Through vigorous implementation of our“Go International”strategy, Shanghai companies also made new headway in winning contracts for overseas construction projects and in acquiring overseas corporations.

More deeply appreciating the need for Shanghai to serve the whole country, we strengthened our exchanges and cooperation with sister provinces and cities at multiple levels and in a variety of forms. A policy document titled Doing More to Serve the Whole Country: Ideas on Strengthening Shanghai’s Domestic Cooperation and Exchanges was elaborated. We keenly promoted synergies in the development of the Yangtze River Delta area and took an active part in the West China Development Strategy and in the revitalization of Northeast China and other old industrial bases. We increased our counterpart assistance to the provinces and cities with which we are twinned. The Hong Kong-Shanghai economic and trade partnership witnessed robust development.

We further promoted employment and improved the social security system in order to raise living standards. We carried out an‘Employment for Ten Thousand People’project, generating jobs for 67,000 people who had had difficulty finding work. We provided more support to those wishing to start their own business by creating an enabling environment for entrepreneurship and strengthening the provision of vocational skills training. We vigorously promoted employment of the surplus rural labor force in the non-agricultural sector, contributing to the creation of 153,000 new off-farm jobs. We improved conditions in the labor market by intensifying government supervision over labor protection.

We successfully launched a Worker’s Compensation Insurance Scheme and made improvements in the operations of the Urban Retirees’Pension Fund with a view to achieving steady growth of the fund’s capital. We also increased the maternity benefit. An institutional framework for urban social insurance has basically been put in place, including old-age pension, medical care, unemployment, maternity and worker’s compensation benefits. The social security system for small towns has also been developed in an active yet prudent fashion, and has been warmly welcomed by rural residents in Shanghai’s ex-urban areas, 587,000 of whom are now covered under the scheme.

We increased assistance and relief to the needy. We provided top-up subsidies to farmers aged 65 or over whose monthly pension entitlement was less than 75 RMB yuan, directly benefiting 303,000 people. We reduced medical insurance costs across the board and put in place a community medical care mutual help program, thus making health care more affordable for urban residents. We also expanded the coverage of the rural cooperative medical care system, basically realizing universal coverage for eligible rural residents. We raised the minimum wage for enterprise employees and the allowance of some retired model workers. We strengthened synergies between social relief and employment promotion programs, helping needy families to improve their living standards through work. The number of households benefiting from our low-rent housing program increased to 13,500. We developed more facilities for the elderly, and improved the quality of services for senior citizens.

Practical measures were taken to promote community development, and the system of“two-tier government, three-tier administration and four-tier network”was refined. The Government improved its procedures for handling citizens’suggestions and complaints, proactively forestalled and resolved disputes and conflicts among the people, and took comprehensive measures to keep law and order, thus maintaining social stability and harmony.

Fellow deputies, none of these achievements of the past year came easily. We attribute them to the correct leadership of the CPC Central Committee, the State Council and the CPC Shanghai Municipal Committee, to the devotion and hard work of the entire people of Shanghai, and to the support and supervision of the Municipal People’s Congress and the CPPCC Shanghai Municipal Committee. On behalf of the Shanghai Municipal People’s Government, I would like to pay tribute and express our sincere gratitude to all the hard-working and committed people of Shanghai and to all of you deputies of the People’s Congress and members of the CPPCC Shanghai Municipal Committee who have rendered great support to the work of the Government. I would also like to extend our heartfelt thanks to all the democratic parties and the Federation of Industry and Commerce and to people from all walks of life. Our gratitude also goes to all the departments of the Central Government, to our sister provinces and cities, and to the People's Liberation Army and People’s Armed Police troops stationed in Shanghai! In addition, I would like to express our sincere thanks to all our compatriots in the Hong Kong Special Administrative Region, the Macao Special Administrative Region and Taiwan as well as overseas Chinese and foreign friends who care about and support the development of Shanghai!

Fellow deputies, we are clearly aware that many difficulties and challenges remain on the road ahead and that a number of inadequacies and weaknesses still exist in the government’s work. Our primary strategy of revitalizing the city through science and education has yet to be further implemented in some districts and some fields, and local capacity for independent innovation is not yet strong enough. Land resources are becoming an increasingly significant constraint; our modern services industry remains comparatively underdeveloped; and there is a relative lack of vitality in the development of the social sector. These have become major factors affecting our economic and social development at present. In the property market, while price increases have moderated citywide, there are some neighborhoods where prices are still rising too fast. A number of new, emerging issues in connection with the property market call for our serious attention. The demolition of old buildings and the relocation of their residents need to be further carried out in an orderly fashion in compliance with the law. In the central city districts, although traffic congestion has been alleviated to a certain extent, there is still a significant gap between the volume of traffic and the capacity of our roads; therefore, fundamentally resolving Shanghai’s traffic problems will require long-term efforts. Within the government, a style of work that is formalistic and bureaucratic continues to exist, to varying degrees in different departments. We have made efforts to promote professionalism and efficiency within our civil service, but there are still areas with which citizens are dissatisfied. Greater efforts are therefore called for in building a better government and redefining the role of government. These are not just challenges for Shanghai’s present development; if not addressed promptly and effectively, they will undermine Shanghai’s long-term development. In these areas then, we must be sober, vigilant and responsible; we must take these problems very seriously, study them carefully, and solve them effectively.



* All 2004 figures in this report are preliminary.


II. Major Tasks for 2005

This year is the last year of the Tenth Five-Year Plan period and an important one for moving forward with all-around preparations for the World Expo. In 2005, under the leadership of the CPC Central Committee with Comrade Hu Jintao as General Secretary and in line with Deng Xiaoping Theory and the important thought of Three Represents, we will put into practice the spirit of the Sixteenth National Congress of the CPC, the Third and Fourth Plenary Sessions of the Sixteenth CPC Central Committee, the Central Economic Working Conference and the Sixth Plenary Session of the Eighth CPC Shanghai Municipal Committee. In particular, we will fully implement the scientific concept of development and forge ahead with our primary strategy of revitalizing the city through science and education. With renewed energy and a pragmatic, pioneering spirit, we will focus on economic restructuring so as to improve the quality and efficiency of our economic growth. We will intensify our reforms and advance the opening-up process. We will overcome bottlenecks in the development of our systems and institutions and work to strengthen the weaker links. We will safeguard economic security, maintain a healthy momentum of sound and coordinated socio-economic development, and preserve social harmony and stability.

The main goals and targets for Shanghai’s economic and social development in 2005 are as follows:

? GDP growth of around 11%;
? fiscal revenue growth slightly more rapid than economic growth;
? an urban registered unemployment rate of around 4.5%;
? the Consumer Price Index (CPI) at 103;
? total R&D expenditure and investment in environmental protection equivalent to 2.4% and 3% or higher of GDP respectively;
? total energy consumption per 10,000 RMB yuan of GDP reduced to 1.02 tonnes of standard coal equivalent or lower;
? per capita disposable income of urban and rural residents raised by around 10% and 8% respectively; and
? full achievement of the goals of the Tenth Five-Year Plan, laying a solid foundation for development in the Eleventh Five-Year Plan period.

In order to achieve these goals and targets, we must apply the scientific concept of development in all aspects of economic and social development, and advance our work on all fronts on the basis of the primary strategy of revitalizing Shanghai through science and education. We must follow the principle that science and technology are the primary productive force and people are the primary resource. We must continue to foster public consensus and social cohesion. Our capacity for independent innovation must be strengthened. And coordinated and sustainable socio-economic development must be promoted on all fronts.

In the course of our work over the coming year, we must concentrate on the following six strategic priorities:

Promoting economic restructuring and shifting to a new mode of economic growth

Shanghai’s industrial development policy must give priority to the tertiary and secondary industries, with a special focus on promoting advanced manufacturing and modern services. We must speed up the upgrading and structural optimization of industry so as to improve the overall quality and the international competitiveness of Shanghai’s economy. We must expand consumption demand, maintain coordinated growth in investment, consumption and export, and achieve balance in terms of the speed, structure and efficiency of economic growth. Our industrial policy must become more focused, so as to encourage further development of those sectors in which Shanghai enjoys strong advantages, stabilize those sectors in which Shanghai is on par with other regions, and scale down those sectors in which Shanghai operates at a disadvantage. We must achieve better coordination between economic development on the one hand, and resource conservation and environmental protection on the other, by promoting sustainable patterns of production and consumption and actively developing an eco-efficient economy and a conservation-oriented city.

Intensifying reforms and opening wider to the world, so as to invigorate economic and social development

Carrying out further reforms is the fundamental solution to deep-rooted problems that hinder socio-economic development. Parallel efforts must be made to develop both the public and non-public sectors of the economy. We must seize every opportunity to push forward reforms and intensify institutional innovation, with a view to making breakthroughs in key areas and to giving full play to the fundamental role of the market in resource allocation. We must take full advantage of the opportunities in China’s post-WTO accession transition period and leverage Pudong’s first-mover advantage in development and opening-up. We must also participate in international competition and cooperation on a larger scale, in more areas and at a higher level, and strive to make Shanghai a more international city.

Strengthening social programs and services and promoting coordinated economic and social development

While maintaining rapid economic growth, we must continue to shift the focus of policy support and public investment towards social programs and services, so as to foster more rapid development of the social sector. We must continue to introduce market competition mechanisms, strengthen differentiated guidance and carry out supporting reforms in order to inject more vitality into the development of social undertakings. We must also continue to promote the balanced development of social programs and services in the urban and rural areas by pooling social resources under unified planning.

Making more contributions to the development of the whole nation, by doing a good job in our own development while proactively serving the whole country

While taking the lead in building a well-off society and achieving modernization, Shanghai must bear in mind the interdependence between the more developed and the less developed regions of China, viewing its future development in the broader context of the whole nation’s development drive. We must follow the principles of mutual complementarity, mutual benefit and coordinated development so as to create synergies between regions for common development and prosperity.

Caring for people’s well-being and maintaining social stability and harmony

We must continue to deliver on our commitment to putting people first. In this context, we must redouble our efforts to improve the people’s livelihood and to ensure in particular that the basic needs of the disadvantaged are met. We must also work harder to address practical issues that citizens care most about. More attention must be paid to the management of social affairs and to public services, and institutional innovations must be encouraged in this regard. Social equity must be achieved and safeguarded, so that all citizens stand to gain more tangible benefits from reform and development.

Balancing current and future interests in drafting the Eleventh Five-Year Plan

In the Eleventh Five-Year Plan, we must lay a solid foundation for the city’s long-term development. Planning must be based on careful analysis of this next five-year period in terms of its strategic opportunities and transitional characteristics and informed by in-depth research on critical issues of overall and strategic significance to Shanghai’s development.

This year, the Government will focus its work on the following ten priorities:

1. Promoting industrial upgrading and structural optimization and building an eco-efficient economy

In our drive to build up Shanghai’s overall service capacity, we will give priority to developing the modern services sector, so as to further improve the quality and competitiveness of our service industry. As part of our Action Plan for Speeding up the Development of the Modern Services Sector, we will carry out pilot projects in a number of areas to expand market access, break up monopolies and reduce sectoral fragmentation. The development of the modern services sector will be further accelerated through the introduction of foreign capital and private investment. The Government will vigorously promote the development of Shanghai as an international financial center and will actively support financial innovation and the development of national financial markets, including the money, securities and futures markets. We will continue to work closely with the national financial regulatory agencies so as to better control and mitigate financial risks and to promote the healthy development of the finance and insurance sectors. Leveraging Shanghai’s functional infrastructure investments, including the deepwater seaport, international airport and info-port, as well as national factor markets, the Government will vigorously develop the modern services sector, including modern logistics, information services and professional services, and will also stimulate growth in the conference and exhibition industry and in tourism. We will also actively develop Shanghai’s cultural and creative industries. We will implement our Action Plan for the Development of Commerce so as to boost commerce and trade. More planning guidance and policy focus will be provided with a view to creating an environment conducive to the development of the service industry.

The advanced manufacturing industry will be developed through the introduction, assimilation and adaptation of international know-how and through independent innovation. We will carry out our Action Plan for the Prioritized Development of the Advanced Manufacturing Industry and promote industrial upgrading through informatization. We will further enhance the core competitiveness of Shanghai’s industry by leveraging our major industrial bases, large enterprises, major projects and well-established brands. The development of electronics and IT, automobile manufacturing, petrochemicals, high-end steel and other pillar industries will be accelerated, with a focus on increasing technology content and achieving economies of scale. We will upgrade Shanghai’s equipment and plant manufacturing industry, focusing on turnkey power generation and rail transportation equipment. We will strengthen partnerships with Central Government enterprises based in Shanghai and build strength in strategic industries such as shipbuilding, aerospace and aviation. With a view to sustaining industrial growth in the future, we will foster emerging industries such as photo-electronics, software, modern biopharmaceuticals and new materials. At the same time, traditional industries will be upgraded through the extensive deployment of advanced technologies and applications.

The Government will actively promote economic eco-efficiency and resource conservation in Shanghai. Action plans will be developed for energy and water conservation and for the integrated utilization of key resources, putting a premium on the sustainable use of land, water, energy and important raw materials. Policies, regulations and standards will be developed to encourage energy efficiency and the integrated use of resources, and a consistent and coherent approach will be applied in resource conservation, integrated energy management and industrial policy. We will strive to create a culture of proactive compliance with respect to resource conservation and environmental protection. We will advocate clean production and explore new and more effective methods to increase resource productivity. By undertaking experiments in a number of key enterprises, sectors and zones, we will strive to become a pilot city in the national economic eco-efficiency program.

2. Promoting innovation and informatization

The Government will continue to implement Shanghai’s Plan of Action for Revitalizing the City through Science and Education and to enhance the city’s capacity for innovation in science and technology. Shanghai’s public service platforms will be further developed, putting a premium on sound operating mechanisms and robust functionality. The Government will formulate mid- and long-term plans for the development of science and technology. The scope of Ministry-Municipality collaboration will be expanded. We will take an active part in developing national-level applied research projects, national laboratories and national engineering centers, so as to bolster our research capabilities in both basic science and applied technologies, thus positioning Shanghai as a leader in hi-tech development. We will further improve procedures for the selection, execution and ex-post evaluation of major technology research projects and will aim at achieving results soon after projects are launched. Policies will be implemented to accelerate the commercialization of hi-tech research results. The Government will improve the enterprise-led innovation system with a view to increasing the independent innovation capacity of local companies. Strategic alliances will be strengthened between industry, academia and the research community and institutional reforms in research organizations will be intensified. In accordance with Shanghai’s Plan of Action for Strengthening the City through Human Resources Development, we will import, develop and leverage human capital in all fields and at all levels, and will create an enabling environment for high-level professionals and innovative teams. The Government will strengthen its work in respect of intellectual property rights and improve IPR protection. Popular science centers will also be further developed.

Information technology will be put into wider application in all aspects of the economy and society, so as to harness the power of IT as a driver of socio-economic progress. We will facilitate the development, consolidation, sharing and utilization of government information resources so as to take the e-government initiative farther forward. The functionality of social security cards, citizen’s e-mailboxes and other applications will be expanded as part of our drive to make more community and public services available online. The Government will upgrade the supporting service system for e-commerce so as to encourage more businesses to become IT-enabled and to promote the use of bankcards. The basic data platform of Shanghai’s urban geographic information system (GIS) will be further enhanced, to better support emergency response, intelligent transportation systems and land and housing administration, and to enable new integrated geographic information applications. We will strengthen the planning and integrated development of information infrastructure, and scale up the capacity of the Shanghai Supercomputer Center, Shanghai Internet Network Access Point and other facilities. The Government will put in place a classification system for the protection of information, an e-security testing and evaluation regime and a center for information security breach prevention and emergency response. The city’s informatization policies, regulations and standards will be further improved, so as to create a more dynamic environment for the deployment of information technology applications.

3. Promoting development of the social sector, with a view to achieving balanced socio-economic development

Education will continue to be modernized on the basis of experiments in comprehensive education reform in line with the direction set by the Municipal Education Conference. We will further consolidate competence-oriented education, promote the balanced development of compulsory education, and reduce the excessive workload of primary and secondary school students. Institutions of higher education will be spurred to achieve excellence through ongoing efforts to optimize their geographical distribution, to strengthen leading institutions and key disciplines, to accelerate the reform of post-graduate education, to improve the quality of instruction and to encourage specialization and differentiation. In conjunction with the Centenary Celebration of Fudan University, we will further the development of Yangpu Knowledge Innovation Zone. An open vocational education system will continue to be developed in line with the needs of the job market and the growing demand for knowledge workers. We will set up a more flexible and open system of continuing education, leveraging modern information and network technologies. An effective lifelong learning system will continue to be developed, so as to turn Shanghai into a learning city. The Government will promote the healthy development of private education. The education sector will be opened up further, with more international partnerships in program delivery and expanded enrolment of international students.

The cultural sector will be further developed through institutional reforms in line with the direction set by the Municipal Culture Conference. In accordance with Shanghai’s guidelines for cultural development and master plan for the construction of cultural facilities, we will develop a number of not-for-profit public cultural facilities, including community cultural centers and libraries, and other functional cultural facilities. The creation of original literature and art will be encouraged and public cultural activities with various themes will be organized to enrich life in the city. We will develop a well-regulated and orderly cultural market and accelerate the development of cultural industries, with priority on news and publishing, film and television, and Internet content provision. We will continue to support the development of philosophy and social sciences, which provide theoretical underpinnings to Shanghai’s modernization efforts.

In order to fully accomplish our three-year plans for developing a public health system and for building a healthy city, we must enhance public health, putting prevention first. The Municipal Public Health Center, an integrated institution with medical service, education and research functions, will be assigned a major role in this process. In order to further raise Shanghai’s capacity for handling public health crises, we must improve early warning, monitoring, prevention and control of highly infectious diseases under an operational regime comprising municipal and district/county-level disease prevention and control centers. The Government will strengthen regional public health planning and sector-wide administration with a special focus on the separation of administration from operation in municipal-level medical institutions. Non-public and overseas investment as well as international partnerships will be encouraged in the local health industry. We will continue to promote participation in sports and exercise so as to raise the level of physical fitness of our citizens. We will strengthen our efforts in the area of competitive sports and will deliver a great 48th World Table Tennis Championship, as well as other major sporting events.

We will continue to reform Shanghai’s public service institutions (PSIs). These reforms will follow the principles of overall planning, differentiated guidance, coordinated arrangements and careful execution. Different approaches will be taken to reform different types of PSIs: those with a mandate to deliver government programs will be transformed into program delivery agencies; those operating on a fee-for-service basis will be reconstituted as enterprises; and those that deliver not-for-profit services in the public interest will enjoy more flexible modalities of operation.

We will continue to promote ethics and good citizenship in society. Through a campaign themed on“Welcoming the World Expo with Courtesy and Consideration”, we will showcase and enrich the city spirit of Shanghai. We will conduct education and awareness campaigns on the importance of being honest and trustworthy and on the rule of law. We will continue to carry out our action plan for moral development in society, and will champion public morality, professional integrity and family virtues. We will strengthen character education for minors. We will put in place long-term, effective mechanisms to promote civic awareness and encourage respectful behavior.

4. Preparing for the World Expo and building modern infrastructure

We will make thorough preparations for the World Expo. World Expo registration procedures will be completed. Site plans will be further fleshed out, with a view to optimizing both use and after-use. Demolition, relocation and other aspects of initial site preparation will be carried out. Along the banks of the Huangpu River, we will develop more public activity spaces, complete the restoration of historical building exteriors along an extended section of the Bund, and advance the development of key zones on both sides of the river.

We will continue to speed up the construction of key infrastructure, focusing on hubs, functional facilities, and networks. We will comprehensively develop Shanghai’s capacity as an international shipping center, by completing on schedule and putting into operation the Yangshan Deepwater Seaport (Phase 1) and the Donghai Bridge, and by completing the second phase of the Deep Waterway Dredging Project on the Yangtze River Estuary. To rapidly develop Shanghai as an aviation hub, we will complete the construction of the second runway and advance the construction of the second terminal for Pudong International Airport. We will better interconnect the city’s urban transport system with external services so as to improve links into and out of the city and thereby enhance overall transportation efficiency. We will devote major efforts to the construction of our basic rail transport network and actively create conditions for the launching of a number of new rail transport projects. The city’s network of expressways will be basically completed. Cross-river transportation links will continue to be developed, and the Xiangyin Road Tunnel will be completed. Construction will continue on the bridge-and-tunnel project connecting Chongming Island with the city proper. We will step up the planning and development of inland waterways and improve the view along the riverfront, so as to give full play to the role of our inland waterway network in supporting navigation, contributing to environmental protection, and beautifying the city. We will enhance our energy security by developing a number of electrical power and liquefied natural gas (LNG) projects.

In order to ensure the health and stability of the property market, the Government will step up its regulation and control efforts, with a view to ensuring that the majority of new properties developed are non-luxury residential units to be owner-occupied by Shanghai residents. We will encourage the development of affordable housing mainly for relocated residents, expand the supply of non-luxury properties to meet the residential needs of citizens, and strive to bring total supply and demand basically into balance and to optimize the structure of supply. Our regulation and control measures will be improved, so as to satisfy consumption demand, regulate investment and curb speculation. We will actively develop the residential rental market, and explore new mechanisms to help low-income families rent apartments. We will further improve our housing-for-all program, keeping the rent of publicly-owned residential properties low and expanding the coverage of the low-rent housing scheme. We will continue with the comprehensive refurbishment of old housing stock, including fitting pitched roofs to flat-roofed housing and installing en-suite bathrooms and kitchens. We will maintain an appropriate scale of demolition and relocation and secure sufficient replacement housing for relocated residents; in particular, we will ensure that demolition and relocation proceed smoothly in preparation for the construction of rail transport lines, development of the World Expo site and redevelopment of dilapidated housing blocks. In order to make sure that the demolition and relocation process is open, fair, transparent, standardized and consistent with laws and regulations, we will put in place or strengthen safeguards in five areas: public notice requirements, procedures for hearing complaints, letters of commitment, investigation of reported malfeasance and regulatory oversight. We will also adopt strict measures to protect historical monuments and sites in Shanghai so as to preserve the city’s cultural heritage.

5. Protecting and improving the environment and further modernizing urban management

We will complete the implementation of our second three-year plan of action for environmental protection. In this context, we will address the root causes of problems, build up institutional capacity and enhance the efficacy of investment. We will intensify pollution control and environmental rehabilitation efforts, focusing on key projects, sectors and zones, so as to improve the overall quality of Shanghai’s environment. In order to realize our goal of making Shanghai an eco-city, we will formulate our third three-year plan of action for environmental protection against higher standards and benchmarks. We will strengthen integrated planning, land control and ecological conservation on Chongming Island and give greater policy support to turn it into an eco-island.

Our transportation development strategy will prioritize public transport. In the transportation sector, our principles will be to integrate long- and short-term planning, to put equal emphasis on construction and management, and to tackle problems at the root. Thus, we shall take an integrated, coherent approach that incorporates long-term strategy, medium-term goals and short-term plans, so as to effectively tackle traffic congestion. We will build up the road capacity in the central city districts by widening and clearing up secondary arteries and feeder roads, optimizing the road network and adding interchange hubs, parking facilities as well as bus lanes. Effective measures will be taken to prevent overly rapid growth in traffic flows. We will conduct road courtesy and safety campaigns to deter such behaviors as jaywalking, illegal parking and blocking traffic. We will strictly enforce traffic rules and punish violators in accordance with the law.

Urban planning and land management will be further strengthened. We will translate into action the initiatives outlined by the Municipal Urban Planning Conference and strictly implement our“Two More and Two Less”strategy. We will thoroughly research major issues in connection with urban planning; accelerate the formulation of all kinds of plans; and strengthen law enforcement in respect of urban planning. In this way, the guiding role of urban planning will be given full play in the development of the city. More outdoor sculptures will be placed around the city. We will improve planning and development of underground space. As required by the strictest land management system, we will strengthen land planning and management, supervise compliance, work out detailed procedures for“land use verification before project approval”and formulate land use standards for each sector and for development zone projects. All these measures will contribute to more rigorous land management and efficient use of land resources.

The Municipal Government will not only build new facilities but also improve its urban management capability. We will further reforms in urban sanitation and environmental upkeep by commercializing service provision and making integrated efforts to keep the city clean and beautiful. We will carry out further reforms in the urban transport and water sectors and reinforce law-based administration. We will improve work safety through better supervision and enhance our disaster preparedness through better emergency contingency plans and response capability.
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6. Deepening economic restructuring and breaking institutional bottlenecks

We must further reform the state assets management system and state-owned enterprises. Following the principle of“allowing multiple models and giving targeted guidance", we will diversify the shareholding structure of state-owned companies and those in which the state holds the controlling share. At the same time, we will nurture a number of big conglomerates with distinctive core competency and speed up the restructuring of small and medium-sized enterprises (SMEs). We must improve the performance of Shanghai-based listed companies. We will put in place a sound asset evaluation system, an open transaction system and a standardized decision-making mechanism. By leveraging the property rights market, we will facilitate the orderly transfer of state assets and thus channel state capital to strategic areas and industries in which Shanghai enjoys advantages. We will make distinctions between different types of state assets and carry out supervision and management accordingly. Explorative efforts will also be made to improve SOE income distribution.

We must vigorously promote the non-public sector of the economy. The main guidelines are to grant equal treatment, open more sectors, guide industry entry, make structural readjustments and provide innovative services. We plan to gradually level the playing field for businesses with different types of ownership in terms of investment and financing, taxation, land use, project tendering, etc. The non-public sector will also be encouraged to participate in the reform, restructuring and reorganization of SOEs and in the construction and operation of infrastructure facilities and public utilities. We will also establish a supporting service system and foster a favorable environment in which entrepreneurship and SMEs can flourish.

We will carry out further reforms to the investment system. We will work out plans and supporting measures to implement the State Council’s decision on investment system reform. We will reform the process of project examination and approval so as to empower enterprises to make independent investment decisions and strengthen the management of government investment.

We will reform the fiscal and taxation systems. The target model is to localize tax collection and share revenue between the municipality and the districts. We will roll out this model in more areas and consolidate institutions for tax collection and administration. Separate escrow accounts must be set up for the collection of extra-budgetary funds so as to improve our budget management. We will balance public spending and enhance budget and tax supervision. In the meantime, we will give stronger financial support to less developed districts and the county by means of transfer payments.

We will improve market order by addressing both the problems and their root causes. We will move fast to build a credit system with focus on expanded use of credit products. In government procurement and project tendering, we will collect and consolidate credit information and improve procedures for the use of credit products. In addition, we will develop a better legal framework for the credit market, a feasible mechanism for penalizing bad credit, and a well-regulated credit reporting industry. We will step up regulation to restore market order, highlighting food and medicine safety, and resolutely curb irregular practices that endanger public health and safety, undermine socio-economic development, or cause significant financial loss to citizens. We will support consumer organizations in exercising supervision and protect the legitimate rights and interests of the consumers.

7. Advancing Pudong’s development and opening-up and making Shanghai open wider and serve the whole country better

Pudong must continue to take the lead in institutional innovation and opening up. Capitalizing on accelerated international industrial migration, particularly in the service sector, we must enhance the magnet and beacon effect of key functional zones in Pudong New Area and turn it into the core component of Shanghai’s endeavor to build the city into an international economic, financial, trade and shipping center. In accordance with our“Focusing on Zhangjiang Hi-tech Park”strategy, we will make new breakthroughs in terms of upgrading industrial capacity, R&D capability, and incubation capability.

We must make better use of FDI. In line with our plan to build a“Headquarters Economy”, we shall continue to target multinational companies as a major source of FDI, attracting their manufacturing facilities, regional headquarters, R&D departments and procurement centers to Shanghai. In order to promote opening up in Shanghai’s service sector, we will introduce more large international players and prestigious brands into the local service market. The Municipal Government will improve its service and create a fair, just and open playing field, where SOEs, foreign-invested enterprises (FIEs) and private Chinese companies can develop side by side. At the same time, we will execute our“Go International”strategy and build our own multinationals and international brands by leveraging our comparative advantages and tapping into overseas resources and markets. In addition, we shall do a better job in hosting international conferences and other international events so as to promote the economic, trade, technological and cultural ties between Shanghai and the rest of the world.

Shanghai should play a bigger role as a port city. By leveraging the synergy between the Waigaoqiao bonded area and port, we will press ahead with our“Efficient Customs”project and electronic customs clearance initiative, integrate relevant resources and improve port management system at local level so as to maximize our advantages as a port city. In our effort to optimize Shanghai’s exports mix, we will upgrade processing trade, enhance the quality, grade and added value of exports and increase the proportion of high-tech and electrical-machinery products. We will tap the full potential of our export processing zone, explore new export destinations and develop international trade in services. We will set up a sound functional mechanism to handle international trade disputes and make better use of international norms to develop ourselves and protect our interests.

We will better capitalize on Shanghai’s strong service capacity to serve the Yangtze River Delta, the Yangtze River Valley at large and the rest of China. In line with the national plan of cross-regional coordination, the Municipal Government will work closer with the rest of the Yangtze River Delta and all provinces and cities along the river to jointly develop the Yangtze River into a Golden Waterway. We must contribute to the West China development and to the revitalization of Northeast China and other old industrial bases, and set up a new mechanism for cooperation at multiple levels and in various forms. The Municipal Government will continue to assist our counterpart provinces and cities in poverty alleviation and economic and social development. We will also carry forward the Hong Kong-Shanghai economic and trade partnership.

8. Facilitating coordinated development between the central city districts and the ex-urban areas, and speeding up urbanization

We will promote coordinated development across all districts and the county by providing tailored guidelines and differentiated policies. On the basis of clearly-defined positioning and comparative advantages of the districts and the county, the Municipal Government will provide more industrial planning and policy guidance. We will build up the capacity of each district and county to leverage its resources and make important contributions to the socio-economic development of the whole city. In the process of urbanization, the Municipal Government will encourage farmers to move to the urbanized areas by actively yet prudently reclaiming rural residential land and appropriately merging villages and rural settlements. In addition, the government will speed up the clustering of industries in the ex-urban areas and the development of new bases for the advanced manufacturing industry, by improving policies and mechanisms for the development of industrial parks. Greater efforts will be made to improve infrastructure facilities in the ex-urban areas and to stimulate the development of nine selected towns, Songjiang New Town and small towns, so that these urbanized areas will attract more residents and industries.

We must ensure that rural residents’income grows steadily. In line with the guidelines of“give more, take less, and allow flexibility”, we will set up a mechanism to protect the long-term interests of our rural residents. We will stabilize their agriculture-related revenue, raise their non-agricultural earnings, increase their income from social benefits and protect their property income, so that their total income can rise continuously. We will protect arable land vigorously to ensure sufficient grain production. Moreover, we will promote metropolitan agriculture for its economic, ecological and service benefits and move steadily towards agriculture modernization.

We will vigorously develop the social sector in the ex-urban areas. We will optimize the allocation of resources, upgrade underdeveloped schools and offer more vocational training programs to new labor market entrants and non-farming rural residents. We will also build more cultural facilities and improve public health services in the ex-urban areas.

We must continue to upgrade the comprehensive service capacity of the central city districts. Setting clear directions for industrial development and building upon the advantages of these urban districts, we will accelerate the development of a number of modern services zones, each with distinctive features. In the central city districts, we will encourage metropolitan industries resulting in expanded employment opportunities, and increase public space and green area leading to better environment.

9. Promoting community development and improving management of social affairs

In line with the principle of strengthening community institutions and introducing grid management, we will carry out pilot projects to turn our communities into well-managed ones that boast complete services, beautiful environment and harmonious atmosphere. Through the system of“two-tier government, three-tier administration and four-tier network”, we will delegate management responsibilities to the grassroots level to increase efficiency, inject vitality and bring real benefits to our people. Efforts will be made to expand the function of sub-district offices in managing social affairs and providing public services. We will empower neighborhood committees as community self-governance organizations and further promote resource integration in communities. We will improve the regulation of not-for-profit organizations and explore ways to establish an institutional framework to energize voluntary community services and other volunteer activities.

The Municipal Government will improve population management. We will optimize the structure and geographical distribution of the population by encouraging population movement from the central city districts to the ex-urban areas. The local residence permit system and the housing rental administration will be further improved. By adhering to the principle of delegation and adopting an integrated and community-based approach, we will further localize the management of the migrant population. We must protect the legitimate rights and interests of migrant workers. We will continue to maintain a low birth rate, promote reproductive health and encourage pre-marriage physical checks, so as to improve newborn health. Effec

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9. Promoting community development and improving management of social affairs

In line with the principle of strengthening community institutions and introducing grid management, we will carry out pilot projects to turn our communities into well-managed ones that boast complete services, beautiful environment and harmonious atmosphere. Through the system of“two-tier government, three-tier administration and four-tier network”, we will delegate management responsibilities to the grassroots level to increase efficiency, inject vitality and bring real benefits to our people. Efforts will be made to expand the function of sub-district offices in managing social affairs and providing public services. We will empower neighborhood committees as community self-governance organizations and further promote resource integration in communities. We will improve the regulation of not-for-profit organizations and explore ways to establish an institutional framework to energize voluntary community services and other volunteer activities.

The Municipal Government will improve population management. We will optimize the structure and geographical distribution of the population by encouraging population movement from the central city districts to the ex-urban areas. The local residence permit system and the housing rental administration will be further improved. By adhering to the principle of delegation and adopting an integrated and community-based approach, we will further localize the management of the migrant population. We must protect the legitimate rights and interests of migrant workers. We will continue to maintain a low birth rate, promote reproductive health and encourage pre-marriage physical checks, so as to improve newborn health. Effective measures will be taken to safeguard the legitimate rights of women and children, to provide equal employment opportunities for women and to protect adolescents.

The Municipal Government will strive to maintain social stability. To this end, we will develop better procedures to forestall conflicts among the people, become more responsive to public complaints and clearly define the responsibility of each competent government department in this regard. We will take various measures to settle disputes, and properly handle and gradually resolve inherited problems which people are concerned about. We will take an integrated approach to keep law and order and crack down on all kinds of crimes in accordance with law, thus effectively protecting the life and property of people.

10. Caring for people’s life and work and building a harmonious society

The Municipal Government will implement an active employment policy. We will expand employment opportunities by growing the economy, link industrial policy with employment policy, and shift our focus in employment promotion towards encouraging entrepreneurship and active job seeking, so that economic growth brings about employment expansion. We will implement policies conducive to entrepreneurship and self-employment, develop and support entrepreneurs, and offer more financial support to micro-finance guarantee and business start-up training programs, so that SMEs and micro-businesses enjoy a better environment and therefore generate more jobs. We will continue vocational training at multiple levels and rapidly develop public vocational training bases with a focus on improving the employability of those having difficulty in finding jobs. The program of“Employment for Ten Thousand People”will be carried forward to create jobs in the service sector for disadvantaged unemployed people. The district and county governments will be responsible and accountable for executing the program and setting up a flexible entry and exit mechanism. We will regulate the downsizing practice of companies to control the loss of jobs. We will also intensify our monitoring of the labor market in order to protect the legitimate rights and interests of workers.

We must further improve the social security system. The Basic Old-Age Pension Scheme for Urban Employees will be in better form. We will make fresh progress in the insurance scheme for small towns by expanding its coverage and giving priority to farmers whose land has been expropriated or requisitioned. The Municipal Government will drive forward reforms to achieve the coordination of medical services, pharmaceuticals and medical insurance and to improve the mechanism of its service procurement under the medical insurance scheme as well as oversight and administration in this regard. We will standardize primary care delivery and further community health care reforms by focusing on building the capacity of community health care centers, so that they can deliver most out-patient services and provide comprehensive primary care in a better way. The pharmaceutical distribution system will be further reformed in conjunction with medical service and medical insurance reforms to cut the inflated price of medicine. At the same time, we will consolidate and improve the rural cooperative medical insurance system to make farmers better insured. The Municipal Government will fine-tune its social relief policy to provide a sound safety net to disadvantaged groups while encouraging those among them who are able to work to improve their lives through employment.

We will give full play to the role of trade unions, the Youth League, women’s federations and other non-governmental organizations as bridges and bonds. We will continue to carry out in earnest work related to ethnic minorities, religious groups, overseas Chinese and Taiwan compatriots. We will take better care of servicepersons, veterans and their families and raise awareness of“National Defense by All”.

The Government will advance social welfare vigorously. We will encourage the non-governmental sector, through stronger policy incentives, to build and run care facilities for the elderly, so as to diversify the provision of care to seniors and better ensure their physical and mental wellbeing. We will make meticulous preparations for the 2007 Special Olympic World Summer Games. We must give greater support to people with disabilities, creating conditions for their equal participation in social activities. We will also enthusiastically support and promote charity, fostering a culture of solidarity, mutual assistance, caring for the poor and the needy, and a society of equality, fraternity and harmony.


III. Redefining the role of government, promoting law-based public
administration, and building a government that is committed
to service, accountability and the rule of law

It is our objective to build a government that is committed to service, accountability and the rule of law, in line with the requirement of governing for the people. In pursuit of this objective, we have worked over the past two years to redefine the role of government, to promote law-based public administration and to develop sound public institutions. In the year to come, in accordance with the requirement of the Fourth Plenary Session of the Sixteenth CPC Central Committee for the Party to strengthen its capacity for governance, we will take concrete steps to further improve the quality of governance in Shanghai, ensuring that public power is exercised in a manner that is scientific, democratic and fully consistent with the law.

1. Redefining the role of government

The Government must perform its functions in strict accordance with the law. While continuing to improve our management of the economy and to strengthen regulation of the market, we will place more emphasis on enhancing our management of social affairs and provision of public services.

The relationship between the government and the business must be further rationalized, with a view to enhancing business vitality. Focusing on those sectors where problems are relatively pronounced and citizens clearly want change, we will accelerate the process of separating government from business and public service institutions, and separating regulation from operation. The government will withdraw from areas in which direct public intervention is inappropriate or ineffective, defining its role as a regulator, not a hands-on manager, and recognizing that the proper participants in the market are enterprises. At the same time, we will continue to streamline administrative approval procedures and to improve the manner in which administrative approval requirements are administered, putting more emphasis on compliance monitoring, so as to increase the efficiency of administrative services and create a more favorable business environment.

The relationship between the government and the market must be further rationalized, so as to give full play to the fundamental role of the market in resource allocation. We will continue to develop a modern market system that is unified, open, competitive and orderly. We will upgrade the capacity of factor markets to promote market competition and the free flow of factors of production. In accordance with the principle of development amidst standardization and standardization amidst development, we will further promote the reform and development of intermediary organizations and trade associations, making the latter vehicles of industry self-regulation.

The relationship between the government and society must be further rationalized, to promote social equity and harmony. In order to strengthen the management of social affairs and the provision of public services, we will further shift the focus of the government’s work and channel more policy and fiscal support towards developing the social sector, building infrastructure, protecting and improving the environment, promoting employment, developing the social security system, and improving the livelihood of the disadvantaged.

2. Promoting law-based public administration

The Government must vigorously implement the Guidelines on Promoting Law-based Public Administration issued by the State Council. All departments must exercise their powers and perform their duties in strict accordance with the scope of their authority and the procedures prescribed by the law. All government personnel must learn how to handle economic and social matters in accordance with the law.

As an important law regulating government conduct, the Administrative Licensing Law of the People’s Republic of China must be strictly implemented by all levels of government. We should take the implementation of the Administrative Licensing Law as an important opportunity to carry out fundamental reforms to shed functions that we inherited but that should not be performed by the government, to abandon administrative practices that have long been taken for granted but that are not in line with the demands of a market economy, and to remove the institutional obstacles and bottlenecks that have long eluded reform. Last year, as part of a major review initiative in compliance with the Administrative Licensing Law, we removed 102 administrative license requirements, more than halving the original total. At the same time, we put in place necessary measures to avoid any regulatory vacuum. This year, we will review and evaluate the implementation of the Administrative Licensing Law. Revenue items linked to administrative licenses will be subjected to further scrutiny and rationalization. The number of activities for which administrative licenses are required will be further reduced. We will put in place supporting regimes, including procedures for creating a requirement for an administrative license, for administrative licensing implementation and for compliance monitoring, which will be strengthened significantly.

Shanghai’s government information disclosure program will be actively developed. Last year, the Municipality enacted Government Information Disclosure Rules, targeting 15 government agencies that are vested with substantial powers and whose work has a strong bearing on the welfare of society and is therefore of great interest to the general public. These agencies were required to enhance their disclosure of information in accordance with the law, so as to increase the transparency of the government’s work. This year, we will continue to promote the comprehensive, sound and orderly development of our government information disclosure program, by expanding its scope, developing supervision and evaluation systems, improving access and user-friendliness, and further developing the government department spokesperson system. We will administer the economic census conscientiously, so as to provide reliable data for economic decision-making.

Shanghai’s integrated law enforcement system will continue to be improved. Putting priority on the cultural market, urban management and economic affairs, the Municipal Government will build and develop a law enforcement system that features clearly defined powers and responsibilities, uniform standards of conduct, effective oversight, and adequate resources, so as to promote strict, fair and professional law enforcement. Last year, in accordance with the uniform requirements of the Central Government, we improved integrated law enforcement in the cultural sector and strengthened regulation of the cultural market. In urban management, we also expanded integrated law enforcement from the ten original pilot districts to all districts and the county in the municipality. This year, we will continue to make progress by further promoting integrated law enforcement in urban management at the municipal level and widening the scope of integrated law enforcement both in the cultural sector and in urban management. Efforts will be made towards establishing an integrated specialized regulatory regime for food safety, covering both food distribution and consumption. Shanghai will thus consolidate resources, improve procedures and standardize conduct in law enforcement.

3. Improving government work systems and operating mechanisms

The operations of the government must be standardized and efficient. Strictly following sound operating procedures, we must put into practice, and continue to improve, scientific and democratic decision-making mechanisms, standardized and orderly execution mechanisms, and fair and transparent supervision mechanisms, so as to put the work of the government on a track of institutionalization and standardization.

The policy formulation process must be improved by integrating public participation and expert evaluation into government decision-making. Over the last two years, we conducted proactive trials in the context of major plans, projects and policies, extensively soliciting views from deputies to the Municipal People’s Congress, members of the CPPCC Shanghai Municipal Committee and the general public, and organizing evaluations by panels of experts. We also conducted public hearings on adjustments to utility prices and other matters that are closely related to the people’s interests. This year, we will further improve our rules and procedures for the formulation of important policies, such as for making collective decisions on major issues, for soliciting opinions from experts, for keeping the public informed and holding public hearings, and for accountability in policy-making. All major policies must be decided collectively on the basis of in-depth research, broad-based consultation and full evaluation by experts. We must make a long-term commitment to these principles and procedures as a basic system for government work. At the same time, we must also put in place sound policy evaluation mechanisms to facilitate timely policy adjustments and improvements and to ensure that policymaking is continually made more scientific and democratic.

Policy implementation must be improved by better balancing power and responsibility. We must enhance the accountability system in government work such that all powers come with responsibilities, those who exercise power are subject to supervision, those whose rights have been infringed upon are compensated, and those who break the law are prosecuted. The government’s working methods and procedures must be further improved on the basis of a clearly defined division of work and responsibilities, as well as a commitment to teamwork and results, so as to ensure that all aspects of the government’s work are carried out in a vigorous, orderly and effective fashion.

Robust supervision mechanisms must be put in place. Since all powers of the government are bestowed by the people, the government must be accountable to the people, act in their interests and accept their oversight. The Municipal Government is committed to reporting on major aspects of its work to the Standing Committee of the Municipal People’s Congress on a regular basis, and to improving the channels of communication with and proactively accepting the supervision of the Municipal People’s Congress and its Standing Committee. We are also committed to reporting on major aspects of our work to the CPPCC Shanghai Municipal Committee in a timely fashion and to accepting its democratic oversight. We will conscientiously listen to the opinions of the democratic parties, the Federation of Industry and Commerce, persons without party affiliation and non-governmental organizations. We will accept the scrutiny of the press and of the general public. We must take seriously the people’s oversight of government agencies and their staff through administrative review procedures, administrative litigation and other legal channels. We must also strengthen internal supervision by supporting the government’s supervisory and audit functions in their independent exercise of oversight in accordance with the law. Law enforcement supervision and performance and financial auditing must be carried out in earnest, focusing on important aspects of the work of government and hot issues that the public is concerned about.

4. Fostering high ethical standards in government and developing a strong civil service

We must embrace a culture of integrity and result-orientation. We must adopt a scientific concept of development and a correct understanding of how to appraise our own performance. We must be committed to people-centered governance, to strict self-discipline, and to being good servants of the people. Our powers must be used to benefit the people; our hearts must be with the people; and our every effort must seek to advance the interests of the people.

In all of its work, the government must proceed from the actual situation and respect objective rules. All our undertakings must stand the test of practice, the test of examination by the people and the test of history. We must make real improvements in our style of work, cutting down on meetings and red tape to spare more time for research at the grassroots level.

We pledge to build a clean government and fight corruption. To this end, we will take a comprehensive approach to tackle both the problems and their root causes, focusing on prevention in addition to punishment. We will put into place a sound system for punishing and preventing corruption, with equal attention paid to education, institutions and supervision. Bent on rectifying misconduct that undermines the essential interests of the people, we will take practical measures to put an end to improper behavior in the government and in business.

We must build a civil service that is politically reliable and professionally competent, that is clean, dedicated, and efficient. All of us must observe the Constitution and the law, and must keep learning to heighten our political awareness, professional competence and ability to administer according to the law. We must be loyal to duty and committed to service; we must practice industry and frugality; we must remain modest and prudent, and continue to live plainly and work hard. We must be able to rise up to challenges and achieve tangible results through down-to-earth work. All government employees, particularly those in leading positions, must be caring, committed, effective and diligent in serving the people. We must build up our capacity to resolve difficulties, overcome bottlenecks and deliver results. Act by act, deed by deed, we shall work passionately, assiduously and effectively to safeguard, fulfill and advance the interests of the people.


Fellow Deputies,

In this new year, we are faced with a new situation, new tasks and new requirements. We are keenly aware of the heavy yet lofty responsibilities we bear. The trust and support that the people have given to the government is an inexhaustible source both of strength and of conviction that we will succeed in our endeavors. Under the leadership of the CPC Central Committee with Comrade Hu Jintao as General Secretary and the CPC Shanghai Municipal Committee, and holding high the banners of Deng Xiaoping Theory and the important thought of Three Represents, we shall rely on the entire people of Shanghai to take the lead in building a well-off society on all fronts and basically achieving modernization, to build our city into an international economic, financial, trade and shipping center, and to achieve greater success.