2026政府工作报告⑩--词汇版

三是突出推进全体人民共同富裕。中国式现代化是全体人民共同富裕的现代化。《纲要（草案）》着眼人口高质量发展，建设生育友好型社会，健全人口服务体系；办好人民满意的教育，劳动年龄人口平均受教育年限提高到11.7年；加快建设健康中国和体育强国，人均预期寿命提高到80岁；积极应对人口老龄化，养老机构护理型床位占比提高到73%；促进高质量充分就业，完善收入分配制度，健全社会保障体系。着眼缩小区域差距和城乡差别，加快农业农村现代化，持续巩固拓展脱贫攻坚成果，优化重大生产力布局，深入推进以人为本的新型城镇化。着眼促进人民精神生活共同富裕，弘扬和践行社会主义核心价值观，大力繁荣文化事业，加快发展文化产业，提升中华文明传播力影响力。

3) Advancing common prosperity for all

Chinese modernization is characterized by common prosperity for all. To promote high-quality population development, the draft Outline proposes the following tasks: building a childbirth-friendly society and improving population services; developing education that meets the people's expectations and raising the average years of schooling among the working-age population to 11.7; moving faster to both advance the Healthy China Initiative and build a country strong in sports and raising life expectancy to 80 years; proactively responding to population aging and increasing the share of nursing beds in elderly care facilities to 73 percent; and promoting high-quality full employment, improving the income distribution system, and refining the social security system. 

To narrow disparities between urban and rural areas and between regions, we must accelerate the pace of agricultural and rural modernization, continue to consolidate and expand our poverty alleviation gains, improve the distribution of major productive forces, and promote people-centered new urbanization. To ensure a rich cultural life for all, we must promote and practice the core socialist values, boost cultural programs, accelerate the development of cultural industries, and extend the reach and appeal of Chinese civilization.

四是突出统筹发展和安全。安全是发展的前提，发展是安全的保障。《纲要（草案）》贯彻总体国家安全观，着眼推进国家安全体系和能力现代化提出多项任务举措。增强粮食、能源资源等供给保障能力，粮食综合生产能力达到1.45万亿斤左右，能源综合生产能力达到58亿吨标准煤。统筹推进房地产、地方政府债务、地方中小金融机构等风险有序化解。提高公共安全治理水平，有效维护社会安全稳定。

4) Ensuring both development and security

Security is a prerequisite for development, and development provides a guarantee for security. Guided by a holistic approach to national security, the draft Outline proposes various tasks and measures to modernize China's national security system and capacity. It highlights the need to improve supply capacity for food, energy, and resources, and envisages increases in overall grain production capacity to 725 million metric tons and in overall energy production capacity to the equivalent of 5.8 billion metric tons of standard coal. It emphasizes the need for coordinated, well-sequenced steps to address risks arising from real estate, local government debt, small and medium local financial institutions, and other areas. It also calls for enhancing public safety governance to effectively safeguard social security and stability.

（三）关于重大工程项目

3. Major projects

围绕推动“十五五”目标任务落实落地，统筹考虑战略性、牵引性和连续性，《纲要（草案）》提出6方面109项重大工程。引领新质生产力发展方面，围绕产业基础能力和竞争力提升、新产业新赛道培育发展、前沿科技攻关、创新基础能力提升提出28项工程。构建现代化基础设施体系方面，围绕国家综合立体交通网、新型能源体系、新型基础设施、对外开放平台等提出23项工程。促进城乡融合发展方面，围绕新型城镇化建设、农业农村现代化建设提出9项工程。保障和改善民生方面，围绕社会主义文化繁荣发展、高质量教育体系建设、健康中国建设、优化“一老一小”服务、社会关爱服务提出25项工程。推动绿色低碳转型方面，围绕碳达峰碳中和、环境质量提升、生态保护修复提出18项工程。重点领域安全保障方面，围绕粮食、能源安全等提出6项工程。这些重大工程兼顾当前和长远，既涉及“硬投资”也包含“软建设”。我们将注重以政府投资带动社会力量参与，更好发挥重大工程项目强基础、补短板、增后劲等重要作用。

To ensure effective implementation of the objectives and tasks of the 15th Five-Year Plan, the draft Outline proposes a total of 109 major projects in six areas, based on a full consideration of their strategic value, guiding role, and continuity. 

To steer the development of new quality productive forces, 28 projects are focused on enhancing China's foundational industrial capacity and industrial competitiveness, developing new industries and new arenas of growth, making breakthroughs in frontier science and technology, and bolstering foundational innovation capacity. 

To modernize the infrastructure system, 23 projects target the development of a national comprehensive and multidimensional transportation network, a new type of energy system, new types of infrastructure, and platforms for opening up. 

To promote integrated urban-rural development, 9 projects are focused on new urbanization and agricultural and rural modernization. 

To ensure and improve public wellbeing, 25 projects are designed to foster a thriving socialist culture, build a high-quality education system, advance the Healthy China Initiative, and upgrade elderly care, childcare, and social care services. 

To promote the green and low-carbon transition, 18 projects are proposed with the aim of achieving peak carbon emissions and carbon neutrality, improving the environment, and promoting ecological conservation and restoration. 

To ensure security in key areas, 6 projects are centered on food and energy security. 

These major projects are of critical importance to China's current and long-term development, and they involve both physical investment and institutional building. We will better leverage government investment to encourage the participation of nongovernmental actors and give full play to the vital role of these projects in reinforcing foundations, shoring up weak links, and sustaining growth momentum.

展望未来，我们充满信心。在以习近平同志为核心的党中央坚强领导下，全国上下团结奋斗，一定能够把“十五五”宏伟蓝图变成美好现实。

Looking ahead, we are fully confident about the future. Under the strong leadership of the Party Central Committee with Comrade Xi Jinping at its core, with the concerted efforts of all of us across the country, we will surely turn the inspiring blueprint of the 15th Five-Year Plan into a living reality.

三、2026年经济社会发展总体要求和政策取向

III. Overall Requirements and Policy Orientations for Economic and Social Development in 2026

今年是“十五五”开局之年。做好政府工作，要在以习近平同志为核心的党中央坚强领导下，以习近平新时代中国特色社会主义思想为指导，深入贯彻党的二十大和二十届历次全会精神，认真落实党的二十届四中全会和中央经济工作会议部署，完整准确全面贯彻新发展理念，加快构建新发展格局，着力推动高质量发展，坚持稳中求进工作总基调，统筹国内国际两个大局，更好统筹发展和安全，实施更加积极有为的宏观政策，增强政策前瞻性针对性协同性，持续扩大内需、优化供给，做优增量、盘活存量，因地制宜发展新质生产力，纵深推进全国统一大市场建设，持续防范化解重点领域风险，着力稳就业、稳企业、稳市场、稳预期，推动经济实现质的有效提升和量的合理增长，保持社会和谐稳定，实现“十五五”良好开局。

This year is the first year of the 15th Five-Year Plan period. To deliver in our work, we in government must, under the strong leadership of the Party Central Committee with Comrade Xi Jinping at its core, do the following:

■ follow the guidance of Xi Jinping Thought on Socialism with Chinese Characteristics for a New Era 

■ fully implement the guiding principles from the Party's 20th National Congress and the plenary sessions of the 20th Party Central Committee

■ act on the guidelines of the fourth plenary session of the 20th Party Central Committee and last year's Central Economic Work Conference

■ fully and faithfully apply the new development philosophy on all fronts, move faster to foster a new pattern of development, and promote high-quality development

■ adhere to the general principle of pursuing progress while ensuring stability

■ keep in mind both domestic and international imperatives

■ better ensure both development and security

■ implement more proactive and effective macro policies

■ make our policies more forward-looking, targeted, and coordinated

■ further boost domestic demand and improve supply

■ optimize the allocation of new resources while making the best use of existing ones

■ develop new quality productive forces in light of local conditions

■ advance the development of a unified national market

■ continue to prevent and defuse risks in key areas

■ provide greater support to keep employment, enterprise operations, markets, and expectations stable

■ promote higher-quality economic growth while achieving an appropriate increase in economic output

■ maintain social harmony and stability

All this will ensure that we get off to a good start in the 15th Five-Year Plan period. 

今年发展主要预期目标是：经济增长4.5%－5%，在实际工作中努力争取更好结果；城镇调查失业率5.5%左右，城镇新增就业1200万人以上；居民消费价格涨幅2%左右；居民收入增长和经济增长同步；国际收支基本平衡；粮食产量1.4万亿斤左右；单位国内生产总值二氧化碳排放降低3.8%左右。

The main targets for development this year are as follows:

■ GDP growth of 4.5–5 percent, while striving for better in practice

■ surveyed urban unemployment rate of around 5.5 percent

■ over 12 million new urban jobs

■ CPI increase of around 2 percent

■ personal income growth in step with economic growth

■ a basic equilibrium in the balance of payments

■ grain output of around 700 million metric tons

■ a reduction of around 3.8 percent in carbon dioxide emissions per unit of GDP

提出这些预期目标，主要考虑是开局之年为调结构、防风险、促改革留出空间，为后期更好发展打牢基础。经济增长目标同2035年远景目标总体衔接，与我国经济长期增长潜力基本吻合，实现这个目标具备有利条件，各地区要结合实际，通过扎实工作争取好的结果。城镇调查失业率5.5%左右，体现了在就业总量和结构性压力较大的情况下，坚持就业优先政策导向和加大稳就业力度的要求。居民消费价格涨幅2%左右，考虑了预期引导和现实可能，我们将通过改善总供求关系，推动价格总水平由负转正、消费价格合理温和回升，促进经济良性循环。单位国内生产总值二氧化碳排放降低3.8%左右，综合考虑了经济社会发展、绿色低碳转型和国家能源安全等多种需要，有利于有序实现2030年前碳达峰目标。

In proposing these targets, we have considered the need to leave some room for structural adjustments, risk prevention, and reform in the opening year of this five-year plan period, so as to lay a solid foundation for delivering better performance in the coming years. The GDP growth target is well aligned with our long-range objectives through the year 2035 and broadly in line with the long-term growth potential of China's economy. As favorable conditions for achieving this target are in place, all local governments should, in light of local realities, make solid efforts to deliver good outcomes. 

We have set the surveyed urban unemployment rate at around 5.5 percent in view of China's overall employment levels and pronounced structural pressures; this requires us to adhere to the employment-first policy and strengthen support for employment stability. 

A projected CPI increase of approximately 2 percent is feasible and will help guide expectations. By better balancing total supply and demand, we will steer general price levels back into positive territory and produce a reasonable, modest rebound in consumer prices to facilitate a virtuous cycle in the economy. 

A reduction in carbon dioxide emissions per unit of GDP of around 3.8 percent is projected to meet multiple needs, including those for economic and social development, green and low-carbon transition, and national energy security. Such a drop will enable us to move step by step toward the goal of peaking carbon emissions before 2030. 

在政策取向上，我们将坚持稳中求进、提质增效，发挥存量政策和增量政策集成效应，加大逆周期和跨周期调节力度，切实提升宏观经济治理效能。

In our policy orientations, we will continue to pursue progress while ensuring stability, improve both the quality and performance of growth, boost synergy between adopted policies and new ones, enhance counter- and cross-cyclical adjustments, and make macroeconomic governance more effective.

继续实施更加积极的财政政策。今年赤字率拟按4%左右安排，赤字规模5.89万亿元、比上年增加2300亿元。一般公共预算支出规模将首次达到30万亿元、比上年增加约1.27万亿元。拟发行超长期特别国债1.3万亿元，持续支持“两重”建设、“两新”工作等。拟发行特别国债3000亿元，支持国有大型商业银行补充资本。拟安排地方政府专项债券4.4万亿元，完善专项债券项目负面清单管理和自审自发试点，重点支持建设重大项目、置换隐性债务、消化政府拖欠账款等。今年财政支出继续保持相当规模，要持续用力优化支出结构，更加注重支持提振消费、投资于人、保障民生等方面，提高财政资金使用效益。中央财政增加对地方财力性转移支付规模，开展整合统筹使用转移支付资金试点，增强地方自主财力和统筹能力。压实分级保障主体责任，兜牢基层“三保”底线。各级政府要更好“当家理财”，建立健全增收节支机制，积极盘活利用存量资源资产，严肃财经纪律，强化预算约束，严控一般性支出，坚决落实过紧日子的要求，务必把省下来的每一分钱都用到发展的关键点、群众的急需处。

We will continue to implement a more proactive fiscal policy.

The deficit-to-GDP ratio for this year is set at around 4 percent. The government deficit is set at 5.89 trillion yuan, 230 billion yuan more than last year. Expenditure in the general public budget is projected to reach 30 trillion yuan for the first time, an increase of about 1.27 trillion yuan over last year. A total of 1.3 trillion yuan of ultra-long special treasury bonds will be issued to provide continued support for endeavors such as implementing major national strategies, enhancing security capacity in key areas, and carrying out large-scale equipment upgrades and consumer goods trade-in programs. A total of 300 billion yuan of special treasury bonds will be issued to enable large state-owned commercial banks to replenish their capital.

This year, 4.4 trillion yuan of local government special-purpose bonds will be issued. We will improve negative list-based management of projects funded by these bonds and fine-tune trials to enable the prompt issuance of special-purpose bonds upon provincial-level review and approval. The funds raised will be used mainly to support major projects, replace hidden debts, and settle overdue payments owed by governments.

Government spending this year will continue to be fairly large in scale. More will be done to optimize its structure so that fiscal funds are used more cost-effectively, with priority given to boosting consumption, investing in people, and raising living standards.

The central government will increase its fiscal transfer payments to local governments. Trials will be conducted to promote more integrated and coordinated use of transfer payments. This will place more fiscal resources at the disposal of local governments and enhance their capacity for coordination. We will see to it that governments at all levels fulfill their respective responsibilities and that, at the primary level, basic living needs are met, salaries are paid, and governments function normally. 

We in government at every level should take better care of financial resources, establish sound mechanisms for increasing revenue and reducing spending, and make the best use of existing resources and assets. We must reinforce financial and economic discipline, strengthen budget constraints, strictly control general expenditures, and keep our belts tightened. Every cent we save must be spent on solving critical development problems and meeting people's urgent needs. 

继续实施适度宽松的货币政策。把促进经济稳定增长、物价合理回升作为货币政策的重要考量，灵活高效运用降准降息等多种政策工具，保持流动性充裕，使社会融资规模、货币供应量增长同经济增长、价格总水平预期目标相匹配。优化创新结构性货币政策工具，适当增加规模，完善实施方式。畅通货币政策传导机制，充分发挥数据要素、知识产权等无形资产作用，强化考核评估、融资担保、风险补偿等支持措施，引导金融机构加力支持扩大内需、科技创新、中小微企业等重点领域。规范信贷市场经营行为，降低融资中间费用，促进社会综合融资成本低位运行。保持人民币汇率在合理均衡水平上的基本稳定。

We will continue to apply an appropriately accommodative monetary policy.

Promoting steady economic growth and an appropriate rebound in prices are key considerations underpinning our monetary policy. We will flexibly and effectively employ a range of policy instruments, including cuts to required reserve ratios and interest rates, and maintain adequate liquidity to ensure that aggregate financing and money supply rise in step with projected economic growth and CPI levels.

We will develop new and better structural monetary policy instruments, scale them up as needed, and refine the ways they are used. We will smooth out the channels for monetary policy transmission and leverage the role of intangible assets such as data as a production factor and intellectual property rights. We will adopt more supportive measures, including those for assessment, financing guarantee, and risk compensation to guide financial institutions in boosting support for key priorities such as domestic demand expansion, scientific and technological innovation, and micro, small, and medium enterprises. 

We will effectively regulate business activities in the credit market and lower intermediary financing charges to bring down overall financing costs. The RMB exchange rate will be kept generally stable at an adaptive, balanced level.

强化改革举措与宏观政策协同。推动高质量发展，既要政策给力，也要改革发力。要用改革的办法打通经济循环的卡点堵点，将政策效果转化为经济内生增长动能。增强宏观政策取向一致性和有效性，将各类经济政策和非经济政策、存量政策和增量政策纳入宏观政策取向一致性评估，使各类政策措施同向发力、形成合力。加强财政、金融、就业、产业等政策协同，深入挖掘政策结合点，创新实施工具，持续放大“组合拳”效应。健全预期管理机制，提振社会信心。

We will improve coordination between reform measures and macro policies.

High-quality development must be supported by both effective policies and robust reform measures. Bottlenecks and obstacles impeding economic flows should be cleared away through reform, and policies should help generate internal growth momentum. 

We will enhance the consistency of our macro policy orientation and make such policies more effective. All policies, whether economic in nature or not, whether already in place or newly introduced, will be included in evaluations to see that they are consistent with the macro policy orientation. This will ensure that all policies are well aligned and produce synergy. We will boost coordination between fiscal, financial, employment, industrial, and other policies, explore policy alignment opportunities, and develop new implementation tools, so as to deliver the best outcomes possible. 

We will refine the mechanisms for managing expectations to bolster public confidence. 

四、2026年政府工作任务

IV. Major Tasks for 2026

党中央对今年工作作出了全面部署，我们要深入贯彻落实，扎实做好各项工作。

We must fully implement the Party Central Committee's overall plans for this year and take solid steps to do all our work well. 

（一）着力建设强大国内市场。坚持内需主导，统筹促消费和扩投资，拓展内需增长新空间，更好发挥我国超大规模市场优势。

1. Building a robust domestic market

Taking the expansion of domestic demand as our priority, we should make coordinated efforts to boost consumption and expand investment, tap into every potential for growth in domestic demand, and better leverage the strengths of our enormous market. 

深入实施提振消费专项行动。激发居民消费内生动力和促消费政策并举，推动消费持续增长。制定实施城乡居民增收计划，在促进低收入群体增收、增加居民财产性收入、完善薪酬和社保制度等方面推出一批务实举措。促进商品消费扩容升级，安排超长期特别国债2500亿元支持消费品以旧换新，优化政策实施机制。设立1000亿元财政金融协同促内需专项资金，组合运用贷款贴息、融资担保、风险补偿等方式，支持扩大内需。扩大个人消费贷款和服务业经营主体贷款贴息政策支持领域，提高贴息上限，延长实施期限。实施好一次性信用修复政策。实施服务消费提质惠民行动，打造一批带动面广、显示度高的消费新场景，加快培育消费新增长点。活跃线下消费，激发下沉市场消费活力。清理消费领域不合理限制措施，释放文旅、赛事、康养等领域消费潜力。支持有条件的地方推广中小学春秋假，落实职工带薪错峰休假制度。加强消费者权益保护。优化入境消费环境，打造“购在中国”品牌。

We will continue to advance special initiatives to boost consumption.

We will adopt measures to stimulate the internal drive for household spending as well as policies to boost consumption, so as to propel further consumption growth. We will formulate and implement an income growth plan for urban and rural residents and roll out a range of practical measures to boost the earnings of low-income groups, increase property income, and refine the remuneration and social security systems. 

To promote the expansion and upgrading of goods consumption, 250 billion yuan in ultra-long special treasury bonds will be earmarked for consumer goods trade-in programs, and refinements will be made to the implementation mechanisms for relevant policies. A special fiscal-financial coordination fund of 100 billion yuan will be created to facilitate domestic demand expansion through combined measures such as loan interest subsidies, financing guarantee, and risk compensation. 

We will broaden the coverage of loan interest subsidies for personal consumers and service entities, while also raising ceilings and extending terms. The one-time credit repair scheme will be put into good effect. We will implement initiatives to upgrade services to the benefit of consumers, develop a number of new, high-profile consumption scenarios with broad appeal, and move faster to nurture new areas of consumption growth. 

We will energize consumption off-line and in lower-tier markets. We will abolish all excessive restrictions on consumption and unlock spending potential in areas such as culture, tourism, sports events, and healthcare. Spring and autumn holidays will be introduced for primary and secondary school students in localities where conditions permit, and the system of staggered paid leave will be implemented. Consumer rights and interests will be better protected, and we will improve the consumption environment for inbound tourists to make China a favored shopping destination. 

充分挖掘释放有效投资潜力。聚焦新质生产力、新型城镇化、人的全面发展等重点领域，增强市场主导的有效投资增长动力，提高民生类政府投资比重。今年拟安排中央预算内投资7550亿元，安排8000亿元超长期特别国债资金用于“两重”建设，分类提高中央投资补助标准。单列并提高用于项目建设的地方政府专项债券额度，继续向投资项目准备充分、资金用得好的地方倾斜。发行新型政策性金融工具8000亿元，带动更多社会资本参与投资。统筹用好各类政府投资资金，支持工作基础较好的地方探索编制全口径政府投资计划，加强项目资金监管，坚决防止低效无效投资。落实促进民间投资的政策措施，完善民营企业参与重大项目建设长效机制，引导民间投资向高技术、现代服务业等新赛道拓展，有效激发民间投资活力。

We will fully tap and unleash the potential of effective investment.

We will focus on key areas such as new quality productive forces, new urbanization, and well-rounded personal development, boost the growth momentum of market-driven effective investment, and increase the share of government investment in public wellbeing initiatives. A total of 755 billion yuan will be earmarked in this year's central government budget for investment. We will also allocate 800 billion yuan raised from ultra-long special treasury bonds to implement major national strategies and enhance security capacity in key areas. Central government subsidies for investment will be raised on a per-category basis. 

Quotas for local government special-purpose bonds earmarked for projects will be raised and placed under separate management. We will continue to allocate more quotas to localities where investment projects are well prepared and funds are used effectively. 

We will issue new types of policy-backed financial instruments with a total value of 800 billion yuan to stimulate greater private sector investment. We will see that all types of government investment funds are used in a well-coordinated way, support localities with their initial groundwork in place in exploring the formulation of overall government investment plans, and step up oversight over project funds to curb inefficient and ineffective investment. 

To invigorate private investment, we will implement relevant promotion policies and measures. We will refine the long-term mechanisms for facilitating the participation of private enterprises in major projects and encourage private investment in new arenas such as high technology and modern services.