习近平主席在党的十八届五中全会第二次全体会议上的讲话（节选）

全面小康，覆盖的人口要全面，是惠及全体人民的小康。全面建成小康社会突出的短板主要在民生领域，发展不全面的问题很大程度上也表现在不同社会群体民生保障方面。“天地之大，黎元为先。”要按照人人参与、人人尽力、人人享有的要求，坚守底线、突出重点、完善制度、引导预期，注重机会公平，着力保障基本民生。

Moderate prosperity in all respects needs to cover the entire population and benefit all the people. The main areas in which we are falling short are found in the realm of public wellbeing. Uneven development is also predominantly manifested in welfare assurances provided to different groups in society. As an old saying goes, “As vast as the heaven and earth may be, the people must always come first.” In accordance with the principle that everyone participates, everyone contributes, and everyone benefits, we need to engage in a major effort to guarantee basic living standards by ensuring that basic needs are met, focusing on key areas, improving systems, emphasizing equal opportunities, and guiding expectations.

农村贫困人口脱贫是最突出的短板。虽然全面小康不是人人同样的小康，但如果现有的7000多万农村贫困人口生活水平没有明显提高，全面小康也不能让人信服。所以，《建议》把农村贫困人口脱贫作为全面建成小康社会的基本标志，强调实施精准扶贫、精准脱贫，以更大决心、更精准思路、更有力措施，采取超常举措，实施脱贫攻坚工程，确保我国现行标准下农村贫困人口实现脱贫、贫困县全部摘帽、解决区域性整体贫困。

Rural poverty is where we are falling short the most. Though moderate prosperity in all respects does not imply the same standard of living for all people, few people will be convinced by our moderately prosperous society in all respects unless there is a notable increase in the living standards of the rural impoverished population, which at present stands at 70 million. For this reason, the Recommendations identify lifting the impoverished rural population out of poverty as the fundamental benchmark for determining whether or not a moderately prosperous society in all respects has been achieved. They stress the need for targeted measures to alleviate and overcome poverty. Therefore, with greater resolve, more focused approaches, and more powerful steps, we must take extraordinary measures to win the fight against poverty, ensuring that all rural residents falling below China’s current poverty line are lifted out of poverty, that all poor counties bid farewell to poverty, and that poor regions shake off poverty as a whole.

我们有1800万左右的城镇低保人口，对他们而言，要通过完善各项保障制度来保障基本生活；对1.3亿多65岁以上的老年人，要增加养老服务供给、增强医疗服务的便利性；对2亿多在城镇务工的农民工，要让他们逐步公平享受当地基本公共服务；对上千万在特大城市就业的大学毕业生等其他常住人口，要让他们有适宜的居住条件；对900多万城镇登记失业人员，要让他们有一门专业技能，实现稳定就业和稳定收入，等等。总之，我们要坚持以人民为中心的发展思想，针对特定人群面临的特定困难，想方设法帮助他们解决实际问题。

China still has around 18 million people living on benefits in urban areas, and it is important that we guarantee their basic standards of living by improving various assurance programs. For 130 million senior citizens over the age of 65, we need to increase the supply of elderly care services and raise the accessibility of medical services. For more than 200 million migrant workers in urban areas, we need to gradually provide equal access to local public services. For more than 10 million university graduates and other permanent residents in megacities, we need to provide access to adequate housing conditions. And for more than 9 million people registered as unemployed in urban areas, we need to give them the skills they need to secure steady employment and incomes. In short, we must maintain a people-centered approach to development, and do what we can to assist different groups of people in overcoming the particular difficulties they face.

“十三五”时期，财政收入不可能像原来那样高速增长，要处理好发展经济和保障民生的关系，既要在经济发展的基础上不断加大保障民生力度，也不要脱离财力作难以兑现的承诺。要重点加强基本公共服务，特别是要加大对革命老区、民族地区、边疆地区、贫困地区基本公共服务的支持力度，加强对特定人群特殊困难的帮扶，在此基础上做好教育、就业、收入分配、社会保障、医疗卫生等各领域民生工作。要坚持量入为出，积极调整财政支出结构。前一阶段，根据财政收入增长很快的形势作了一些承诺，现在看来要从可持续性角度研究一下，该适度降低的要下决心降低。

During the period of the 13th Five-Year Plan, the fiscal revenue of the government cannot possibly grow as quickly as it has done in the past. It is therefore important that we properly balance the relationship between economic growth and the provision of public welfare assurances. While continuing to increase public welfare assurances in step with the pace of economic growth, we must be careful not to make unrealistic promises that we cannot keep. We need to attach priority to enhancing basic public services, especially in old revolutionary base areas, ethnic minority areas, border areas, and impoverished areas. We also need to enhance assistance to people with particular difficulties, taking this as a basis for carrying out sound welfare initiatives in the fields of education, employment, income distribution, social security, and health and medical care. To make sure that we do not spend beyond our means, we need to make active adjustments to the government spending mix. In the past, when our fiscal revenue was growing rapidly, we made certain promises which may now need to be reconsidered on grounds of sustainability. Where certain cutbacks are needed, we need to act decisively.     

全面小康，覆盖的区域要全面，是城乡区域共同的小康。努力缩小城乡区域发展差距，是全面建成小康社会的一项重要任务。对这个问题，要辩证地看。城市和乡村、不同区域承担的主体功能不同。青海和西藏的主要区域是重点生态功能区，是世界第三极，生态产品和服务的价值极大。如果盲目开发造成破坏，今后花多少钱也补不回来。但是，在现行国内生产总值核算体系下，只用国内生产总值衡量发展水平，这些地方必然同发达地区的发展差距越来越大。我们说的缩小城乡区域发展差距，不能仅仅看作是缩小国内生产总值总量和增长速度的差距，而应该是缩小居民收入水平、基础设施通达水平、基本公共服务均等化水平、人民生活水平等方面的差距。此外，对城乡地区收入差距，也要全面认识。城乡区域之间生活成本特别是居住成本很不一样，光看收入也不能准确反映问题。

Moderate prosperity in all respects needs to cover all parts of the country, and to be shared by urban and rural areas. One of the major tasks in building a moderately prosperous society in all respects is to narrow the development gap between urban and rural areas and between different regions. However, this is an issue that must be viewed dialectically. Urban areas, rural areas, and different regions all assume different functions. The main parts of Qinghai and Tibet, for instance, serve as key ecosystem service zones. They are the world’s “third pole,” and the value of the ecological products and services they provide is enormous. Were we to damage these areas through rash development, no amount of money would be able to repair them. However, under our current system for measuring the GDP, i.e., which takes the GDP as the sole measure of economic development, the gap between these areas and developed parts of the country is sure to become increasingly wide. When we speak of narrowing the development gap between urban and rural areas and between different regions, we cannot simply see this as a matter of closing the gap in terms of GDP and the rate of economic growth. Rather, we need to narrow the differences that exist in terms of income levels, infrastructure accessibility, access to basic public services, and standards of living. In addition, we also need to fully understand the income gap between urban and rural areas. Given that costs of living, especially housing costs, vary significantly between urban and rural areas and between different regions, incomes alone are not an accurate indicator of the development gap between these areas.  

第三，防风险，着力增强风险防控意识和能力。今后5年，可能是我国发展面临的各方面风险不断积累甚至集中显露的时期。我们面临的重大风险，既包括国内的经济、政治、意识形态、社会风险以及来自自然界的风险，也包括国际经济、政治、军事风险等。如果发生重大风险又扛不住，国家安全就可能面临重大威胁，全面建成小康社会进程就可能被迫中断。我们必须把防风险摆在突出位置，“图之于未萌，虑之于未有”，力争不出现重大风险或在出现重大风险时扛得住、过得去。

Third, we need to strengthen our awareness of risks and capacity to guard against them.

The next five years is likely to be a period in which risks continue to build up and possibly even emerge in concentrated fashion. Major domestic risks include economic, political, ideological, social, and nature-related risks; while major international risks include economic, political, and military risks. If a major risk occurs that we cannot control, China’s national security could be seriously threatened and the process of building a moderately prosperous society in all respects could be interrupted. It is therefore essential that we place risk prevention in a prominent position, and be prepared for the worst before it happens, so as to ensure that we can prevent the occurrence of major risks or survive any major risk that might occur. 

过去，我们常常以为，一些矛盾和问题是由于经济发展水平低、老百姓收入少造成的，等经济发展水平提高了、老百姓生活好起来了，社会矛盾和问题就会减少。现在看来，不发展有不发展的问题，发展起来有发展起来的问题，而发展起来后出现的问题并不比发展起来前少，甚至更多更复杂了。新形势下，如果利益关系协调不好、各种矛盾处理不好，就会导致问题激化，严重的就会影响发展进程。

In the past, we used to think that certain problems were the result of China’s low level of economic development and the low incomes of the people, and that these problems would diminish once the economy developed and people’s living standards improved. Now, however, it appears that development has brought its own problems, just as underdevelopment did in the past. What’s more, these problems are no fewer in number than before, and may even be more numerous and complex. Under these new circumstances, if we fail to do a good job of balancing various interests and handling various problems, these problems will only worsen. In severe cases this could even adversely affect our development.

需要注意的是，各种风险往往不是孤立出现的，很可能是相互交织并形成一个风险综合体。对可能发生的各种风险，各级党委和政府要增强责任感和自觉性，把自己职责范围内的风险防控好，不能把防风险的责任都推给上面，也不能把防风险的责任都留给后面，更不能在工作中不负责任地制造风险。要加强对各种风险源的调查研判，提高动态监测、实时预警能力，推进风险防控工作科学化、精细化，对各种可能的风险及其原因都要心中有数、对症下药、综合施策，出手及时有力，力争把风险化解在源头，不让小风险演化为大风险，不让个别风险演化为综合风险，不让局部风险演化为区域性或系统性风险，不让经济风险演化为社会政治风险，不让国际风险演化为国内风险。

What needs to be noted is that risks tend not to emerge in isolation, and are more likely to appear in intertwined fashion. Facing various potential risks, Party committees and government authorities at all levels must enhance their sense of responsibility and conscientiousness, and prevent and control risks falling within the scope of their duties. It is unacceptable to shift responsibility for preventing risks to a higher level or to leave the responsibility to our successors, nor is it acceptable to irresponsibly create risks during our work. We must step up our efforts to investigate and study various sources of risks, enhance our ability to carry out dynamic monitoring and real-time early warning, raise the sophistication of our risk prevention and control initiatives, and ensure that we are able to identify, locate the remedies to, and take comprehensive measures to resolve various potential risks as well as their causes. We must take swift and powerful action in a bid to ensure that risks are dissipated at the source, thereby preventing small risks from becoming major ones, individual risks from becoming combined ones, local risks from becoming regional or systemic ones, economic risks from becoming social and political ones, and international risks from becoming domestic ones.