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水利部发展研究中心金海、刘登伟关于2011年中共中央一号文件的概述与解读-英文
  2012-09-24 09:07  

  By Jin Hai, Liu Dengwei

  2011 No. 1 Policy Document Issued by of the CPC Central Committee focused on China's water conservancy issues. This is the first time the No. 1 Central Policy Document has redirected its focus to water conservancy after seven consecutive years of concentration on issues regarding agriculture, rural development and farmers’ issues from 2004-2007.

  I. Background and momentum

  China has made a classic thesis and incisive statements on the status and role of the water conservancy at different historical periods. As early as 1934, Chairman Mao Zedong brought forward that “Irrigation is the livelihood of agriculture”; up until the end of the 20th century after China adopted the reform and opening-up policy, the nation has explicitly stated that “water conservancy is an important basis and guarantee for the sustainable and stable economic and social development of the nation”; and in this new century, the Central Government has advanced with the times to propose that “water is a basic natural resource and strategic economic resource”. With rapid economic and social development, China's water resource situation is undergoing profound changes, and issues of water security are worsening, whereas water conservancy exerts an even more significant impact on the state’s overall strategic position. Further specifying the strategic positioning of water conservancy is a fundamental issue imperative to the long-term development of water conservancy.

  To keep up with the changing situations in the new era, the Document has mapped out a strategic positioning for water conservancy. “Water is the source of life, the essential factor of productivity, and the basis of an ecosystem”. This statement renders a new clarification of the important role of water resources. “Water conservancy is the indispensable precondition of construction of modern agriculture, the irreplaceable foundation of economic and social development, and an integral part of the security system of ecological environment improvement.” This statement takes full account of the multiple functions of water conservancy, and illustrates the important position of water conservancy in the new situation in a comprehensive and profound way. “Water conservancy embodies strong public, constructive and strategic interest”, “Acceleration of reform and development of water conservancy plays an important role not only on agricultural and rural development, but also on the overall economic and social development”, “Water conservancy not only relates to security of flood control, water supply and food, but also relates to economic security, ecological security and national security”. All the above statements give fully consideration of multiple attributes and connotations of water conservancy.

  II. Priority and key areas

  1. Pending Issues

  China is a populous agricultural country. The food security of 1.3 billion of population has always been a top priority for the country’s prosperity. The issues regarding agriculture, rural areas and farmers are an indispensable part of the overall development of national undertakings. The fundamental national water situation involves a large population, scarce land resources, water shortages, and uneven spatial distribution of water resources, whereby water conservancy does not match the allocation of productive forces. At present, more than half of China’s arable land is lacking in basic irrigation and drainage. Nearly 300 million of China’s rural population has no access to safe drinking water. The economic and social landscape in some rural and remote areas is still very backward. There are no fundamental changes in the weak foundation of agriculture, and rural areas still lag behind in overall development. The low levels of water conservancy construction and underdeveloped irrigation systems are still the major drawbacks affecting the stable development of agriculture and national food security. With accelerating industrialization, urbanization and agricultural modernization, while the global impact of climate change increases, making water conservancy an important constraint affecting farmers' income and economic and social development in rural areas. In recent years, although the state has substantially increased investment in water conservancy construction, compared with the requirements of economic and social development of water conservancy, the construction speed is still lagging behind, and frequent occurrence of severe floods and droughts have caused major problems for livelihoods and security of property, exposing the shortcomings of farmland water conservancy systems, which reiterate a warning on the seriousness of accelerating the construction of water conservancy projects without delay.

  2. Focused areas

  The No. 1 Central Policy Document puts forward that farmland water conservancy shall be the priority for the rural infrastructure construction. This is the major strategic policy adopted by the Chinese government conforming to the trends of the times and based on periodical characteristics of the basic national conditions of water conservancy and its development, and the scientific development rules of water conservancy.

  (1) Emphasis on food security

  The priorities for food security are as follows: to speed ​​up construction projects in irrigation areas; to promote high-standard farmland construction to safeguard productivity regardless of flood and drought; to accelerate construction of the weak links of flood and drought control; to pick up the pace of reservoir reinforcement and building conservancy projects on medium and small rivers; to boost construction of water resource projects; to improve the level of water resources control and water supply capability; and to significantly improve the situation of drought-prone and waterlogged land in agricultural and rural areas. It also emphasizes paying close attention to the construction of a number of water supply projects, and effectively solving the problem of drinking water safety in an effort to improve ecological protection and hydropower resource development, upgrade the rural environment and economic prosperity in rural areas.

  (2) Emphasis on pollution prevention

  The priorities for pollution prevention are as follows: to set restrictions on assimilating pollution in functional water areas; to increase control of area source pollution; to improve water quality in rivers and lakes; and to change the backwardness of rural areas. It also emphasizes strengthening protection of water sources, reinforcing the assessment mechanism of key control indicators of water resources, and effectively improving awareness at all levels of governments and the society as a whole.

  (3) Emphasis on institutional reforms

  The priorities for institutional reforms are as follows: to build a new management mechanism of farmland irrigation and water conservancy; to deepen the reform of property rights of small rural water conservancy projects; to build up and improve water property right and water market; and to implement integrated management of urban and rural water supply. It also emphasizes promoting the reform of agricultural water pricing, vigorously encouraging water conservation and industrial restructuring with the balance between efficiency and fairness, while enhancing construction of grassroots water service systems, developing cooperative organizations of farmers on water utilization, and encouraging farmers' self-management. The priorities also highlight the overall strengthening of scientific and technological innovation in an adaption to new trends in the development of information technology. The laws and regulations regarding water conservancy shall be further improved and administration on water conservancy shall be vigorously promoted.

  (4) Emphasis on farmers' participation

  The priorities for farmers' participation are as follows: to give full play to the enthusiasm and initiative of farmers, to mobilize farmers to concentrate more on self-reliance; to set off a new upsurge of irrigation and water conservancy construction; to encourage farmers to take a variety of forms to participate in the water conservancy and support the development of water utilities. It also emphasizes on increasing education and training efforts, supporting farmers to establish water conservancy organizations engaged in managing and serving their own interest. The emphases also reiterate to build up farmers’ Mutual Aid Organizations so as to encourage them to become new socialist farmers participating in self-management and self-services.

  II. Important institutional innovation

  The No. 1 Central Policy Document explicitly proposes that it is a basic national policy to implement the most stringent water management system. This is a major strategic decision made by the CPC Central Committee and State Council taking into consideration of the overall situation, reflecting the requirements of the scientific development concept and the aspirations of the people. In the face of the worsening situation of water resources, we should attach importance to water safety as we attach importance to the national food safety; we should place stringent water management as we place stringent land management; and we should also make efforts in water conservation as we make efforts in energy saving and emission reduction. The establishment and implementation of the most stringent water management system is the only way out. Only through the most stringent implementation of the water management system, should we reverse the over-exploitation of water resources, and the disorderly and low-level development, in order to effectively solve the severe water resource problem in the country, and strongly safeguard sustainable economic and social development.

  In order to implement the most stringent water management system, it is necessary to establish a sound legal system, and to create a favorable environment for the rule of law. From the three aspects of quantity, quality, and efficiency of water use, three systems with "three red lines" shall be established so as to tackle the three current outstanding problems of over-exploitation of water resources, severe water pollution, and waste of water use. The most stringent water management shall be implemented, and management shall be strengthened while management accountability shall be further specified. The management responsibilities and examination system of water resources shall be set up, and the key control indicators such as exploitation of water resources and conservation and protection shall be taken as "hardcore benchmarks" of the national economic and social development, and shall be included in the performance evaluation system in the local Party and government leadership at or above the county level.

  IV. Innovation of input channels

  1.Main problems

  As important infrastructure for national economic and social development, water conservancy shoulders vital responsibilities in building a socialist harmonious society and a moderately prosperous society. Since the large-scale floods in 1998, the state has increased investment in water conservancy construction; however, there have emerged issues such as the huge gap between supply and demand of water resources input, frequent fluctuations, and a lower proportion of the state financial expenditures. Due to serious shortage of investment, there is no fundamental change in the situation of the backward water infrastructure, and the comprehensive flood control and drought mitigation system is not yet effective to protect the people’s life and property safety, which results from “fragile foundation, outstanding loans and all-round insufficiency”.

  2. Main measures

  (1) To specify channels based on public finance. Water conservancy is a non-profit based infrastructure. Strengthening water conservancy construction and provide public services is an important duty of governments at all levels. At present, public service capability and level is not high; public service coverage of water conservancy is still very low; and there is quite a huge gap between the status quo and the requirements of building a harmonious society. This determines that in the next period of time, we must increase the public financial support to water conservancy, take water conservancy as the key areas of investment in public financing with the government playing the leading role in construction of water conservancy projects. The government at all levels shall increase the budget and investment in water conservancy input such as fixed assets, land premium year by year, and extend years and enlarge the scope of levy of the water conservancy construction fund in an effort to effectively solve the problem of inadequate investment in water resources.

  (2) To guide financial support to water conservancy construction

  In the context that total economic output continues to expand, assets of China’s financial institutions have undergone steady growth. The supply environment of financial assets continues to improve, providing a favourable financial environment to the water conservancy construction, which will bring forth a number of benefits in increasing water conservancy investment if under appropriate guidance. Financial discounts shall be rendered to water conservancy loans which are in line with the provisions of the Central Government’s financial discount. Financial resources from the market based on financial credit shall be utilized in key water conservancy projects. Domestic and foreign preferential loans shall be given priority to appropriate to water infrastructure projects. “Usufruct” collateral loans shall be actively explored to water conservancy projects built for the purpose of public interest, and preferential income tax policies shall be applied to enterprises which are engaged in water infrastructure projects. Policy banks shall actively grant medium- and long-term policy-based lending business to water conservancy projects, and play the role of supporting the construction of water conservancy projects through incentives such as long-term, low-interest, and large amount of loans.

  (3) To establish a diversified investment system

  Water conservancy construction is a challenging task and involves all aspects of society. We should make efforts to form a multi-channel, multi-level and a wide range of investment guarantee mechanism of water conservancy project in order to attract all kinds of social capital investment in water conservancy construction, and form a constructive pattern utilizing all social resources. We should also make full use of capital market, encourage enterprises that are engaged in water conservancy project to issue stocks, bonds and set up fund, and support non-public economy to participate into the infrastructure constructions and operations of rural hydropower development, urban water supply and drainage and sewage treatment. As for urban water supply, sewage treatment, hydropower development, franchising, investment grants, and other measures could be taken in order to attract participation of social capitals. We shall also encourage collective agricultural organizations and farmers to participate in treatment and governance of soil erosion in those erosion-driven areas. Contracting, leasing, auction and other forms of property right transfer of small-scale farmland water conservancy facilities shall be applied. Fund raising and labor employment on a case-by-case basis shall be improves so as to strengthen farmers’ self-development capability.

  (4) To standardize management of water conservancy investment projects

  We should safeguard efficiency and safety of large-scale construction funds, build a sound decision-making mechanism of water conservancy investment projects of the government at all levels, regulate management of investment funds, and make overall optimization and rational use of various types of investment funds. The supervision system of water conservancy investment shall be further improved, and the government investment accountability system shall be established.

  V. Important mechanism innovations

  1. Main problems

  Since China’s reform and opening up, in accordance with the general requirements of the national political and economic reform, the reform on water conservancy has been under solid progress in an orderly manner; the shift of water administrative functions has been accelerating; social management and public services of water conservancy have been significantly strengthened; and the management system reform of water conservancy projects have been steadily carried out. These have all exerted a strong impetus to water conservancy undertakings. In the meanwhile, we must aware that although water conservancy reform has made significant headway and the building of institutional mechanisms has achieved important results, compared with the requirements of the national administrative system and the market economy reform, and compared with the requirements of the safeguarding a sound and rapid development of water conservancy undertakings, the problems regarding problematic development system, rigid mechanism, and the overall outdated reform still exist. In this regard, the No. 1 Central Policy Document has clearly iterated that the state should persist in reform and innovation, accelerate reform in key difficult fields of water conservancy, and resolve structural and institutional obstacles restricting water conservancy development.

  2. Main measures

  (1) To improve water resources management system

  We should strengthen the unified management of water resources in urban and rural areas, make optimized planning and coordinated governance of urban and rural water supply, comprehensive utilization of water resources, water environment treatment and flood control and drainage, so as to promote optimal allocation of water resources. A combining management system of river basin management and regional management shall be improved, and a water resources management mechanism with specific distribution of responsibilities, a clear division of labor, a standardized code of conduct and coordinated operations shall be established. We should also make efforts to upgrade coordination mechanism of water conservation protection and water pollution control.

  (2) To improve benign operating mechanism of water conservancy

  Based the characteristics of water conservancy projects such as versatile nature, diversified functions and different scales, the state shall firmly establish the general idea of “distinguishing between different natures of different water conservancy projects, and promoting reform according to different classifications”. In order to successfully and fully accomplish the reform missions of water conservancy system, implement the reform of the management system of state-owned water conservancy projects, upkeep basic spending and funding for maintenance of water management organizations engaged in public welfare or quasi-public welfare services, the Central Government shall provide subsidies to fund for maintenance and upkeep of public welfare projects in the central and western regions, as well as poverty-driven areas. Social insurance of redirected labor force of water management organizations shall be properly provided. As for small water conservancy projects, especially the small-scale public welfare water conservancy projects with their particularly weak management, the property rights of ownership and use shall be clearly divided; the entities and their accountabilities shall be specified, subsidies shall be provided to fund management and maintenance of small-scale water conservancy projects which serve public interest; and a variety of social and professional management models of water conservancy projects shall be further explored. The market mechanisms shall also be highlighted to play an important role in construction and operation of water conservancy projects. Outsourcing systems shall be promoted in managing non-profit and government funded projects. Non-profit water conservancy projects under appropriate guidance shall take active move to enter the market by means of improving corporate governance structure and realize independent operations and self-financing.

  (3) To establish a sound grassroots water service system

  The state has clearly brought forth that the grassroots water service institutions shall be improved, taking township or small river basins as units. In order to ensure that the grassroots water service institutions effectively implement public welfare functions such as water resource management, flood control and drought relief, construction of farmland irrigation infrastructure, science and technology promotion of water conservancy, employment of personnel shall be in accordance with the regulations, and funding of staffing shall be included in the county-level budget. In the meanwhile, farmers’ cooperative organizations engaging in water use shall be vigorously developed.

  (4) To propose water price reform programme

  It is necessary to gradually implement the system of progressive pricing increase of excessive water use in industrial and service sectors, and broaden the price gap between high water consumption industries and other industries. It should give full consideration to the affordability of water users in urban households and adjust the water price in a reasonable way while steadily implement the pyramid-shaped water pricing system. In terms of agricultural water usage, it is indispensable to forcefully adhere to the principles of water conservation, reduce farmers' expenditure on water, protect benign operations of irrigation and drainage projects, and promote integrated price reform of agricultural water use. The operation and management costs of agricultural irrigation and drainage engineering shall be appropriately subsidized by fiscal budget. It is also necessary to explore the ways of enabling farmers to enjoy favorable water price within the usage of certain quotas, and the ways of progressive pricing increase of exceeding fixed water use.

  VI. Policy implementation

  The No. 1 Central Policy Document has placed the water conservancy work on a more prominent position in the development cause of the Party and the country. It not only fully reflects the willingness of the Party and the country, but also expectations of the majority of the people. The main task and basic goal of promoting water conservancy by leaps and bounds has been specified, and the state shall strive to realize modernization of water conservancy development with Chinese characteristics. Leadership and implementation of the plan is the essential part in realizing the tasks and goals.

  The passive situation of weak water infrastructure and scarcity of resources shall be reversed as soon as possible. It relies upon the Party committees and governments at all levels to conscientiously strengthen water conservancy work, study and resolve the outstanding problems in the development of water conservancy reform in a timely manner in accordance with the deployment of the CPC Central Committee. All types of supporting measures and methodologies within the accountability scope shall be stipulated as soon as possible in order to ensure that responsibilities, policies and performances are all in place. Chief executive’s responsibility system shall be stringently applied in implementing flood control and drought relief, water security, water resource management, reservoir safety management, and key performance indicators such as regional water resources development and utilization, conservation and protection shall be served as an important basis of comprehensive evaluation and assessment of leading cadres at all levels of government. The regional economic and social development and its adaption to the water resources and water environment shall be taken as inspection measures of accelerating the transformation of the model of economic development. Party committees and governmental departments at all levels shall closely cooperate to strengthen communication, establish efficient operation mechanism of information sharing, smooth communication and close coordination, and form a joint force to promote the reform and development of water conservancy.

  Conclusions

  China has the world’s largest difficulties in water treatment.The special national situation and water conditions determine that foreign practices and models could not be rigidly copied in China. It requires mobilizing all social forces to support water conservancy and strive for a path to its modernization with Chinese characteristics. It is necessary to increase public awareness of problems and trends faced by China’s water resources, carry out water cultural literacy, establish awareness of flooding, water conservation and water resource protection, and mobilize all forms of social forces to support and care for water conservancy utilities. The state shall actively explore new mechanism and novel measures to draw on all social resources to carry out water conservancy and guide the masses to actively participate in water conservancy cause.

责编:魏永静  
 
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