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The Eleventh Five-year Plan on Utilization of Foreign Investments
[Effective]
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利用外资“十一五”规划
[现行有效]
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【法宝引证码】
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The Eleventh Five-year Plan on Utilization of Foreign Investments
(State Development and Reform Commission, November 2006)
Preamble
The Eleventh Five-year Plan on Utilization of Foreign Investments is an important part of the Eleventh Five-year Plan of China's national economic and social development. The plan puts forward the guiding ideology, strategic objective, key tasks, corresponding policies on and measures for utilization of foreign investments in China for the period of the Eleventh Five-year Plan on the basis of summing up the overall situation of the Tenth Five-year Plan on Utilization of Foreign Investments and analyzing the domestic and foreign environments that the Eleventh Five-year Plan faces, and is an important guideline of China's foreign investment utilization work during the period of the Eleventh Five-year Plan.
During the period of the Eleventh Five-year Plan, we shall, for the sake of the foreign investment utilization work, fully practice the scientific development view, further propel the utilization of foreign investments to be fundamentally converted from “being quantity oriented” to “being quality oriented”, practically transfer the focus of utilization of foreign investments from making up deficiencies of funds and foreign exchanges to bringing in advanced technologies, management experiences and high-quality talents, pay more attention to ecological construction, environmental protection, conservation and comprehensive utilization of resources and energies, and practically combine the utilization of foreign investments with the upgrading of domestic industrial structure and technological level.
According to the plan consented to by the State Council on working out special planning, the present Plan is worked out by the State Development and Reform Commission on the basis of widely soliciting opinions from 40 relevant ministries, commissions and directly subordinate institutions of the State Council including the Ministry of Foreign Affairs, the Ministry of Finance, the Ministry of Commerce, the People's Bank of China, 11 industrial associations, the development and reform departments of local governments as well as some research institutions, enterprises, experts and scholars.
| | 利用外资“十一五”规划
(国家发展和改革委员会 二〇〇六年十一月)
前 言
利用外资“十一五”规划，是我国国民经济和社会发展“十一五”规划的重要组成部分。该项规划在总结“十五”利用外资的总体情况，分析“十一五”面临的国内外环境的基础上，提出了“十一五”期间我国利用外资的指导思想、战略目标、重点任务及相应的政策措施，是“十一五”期间我国利用外资工作的重要指南。
“十一五”期间，利用外资工作要全面贯彻落实科学发展观，进一步推动利用外资从“量”到“质”的根本转变，使利用外资的重点从弥补资金、外汇不足切实转到引进先进技术、管理经验和高素质人才上，更加注重生态建设、环境保护、资源能源节约与综合利用，切实把利用外资同提升国内产业结构、技术水平结合起来。
根据国务院同意的专项规划编制计划，本规划由国家发展和改革委员会在广泛征求外交部、财政部、商务部、人民银行等国务院40个有关部委、直属机构和11家行业协会，地方政府发展改革部门及部分研究机构、企业、专家学者的意见基础上编制。
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Contents
| | 目 录
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I.Basic Information on China's Utilization of Foreign Investments during the Tenth Five-year Plan
| | 一、“十五”时期我国利用外资的基本情况
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II.Guiding Ideology and Overall Strategic Objective of China's Utilization of Foreign Investments during the Eleventh Five-year Plan
| | 二、“十一五”我国利用外资的指导思想和总体战略目标
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III. Major Tasks of China's Utilization of Foreign Investments during the Period of the Eleventh Five-year Plan
| | 三、“十一五”期间我国利用外资的主要任务
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(1) Guiding the optimization and upgrading of the industrial structure of foreign investments.
| | （一） 引导外商投资产业结构优化和升级
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(2) Promoting the building-up of a conservation-minded and environment-friendly society.
| | （二） 促进建设资源节约型、环境友好型社会
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(3) Propelling the opening up to the outside world of service industries actively and steadily.
| | （三） 积极稳妥推进服务业对外开放
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(4) Promoting the building-up of an opener independent innovation system.
| | （四） 促进建立更加开放的自主创新体系
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(5) Promoting harmonious regional economic development.
| | （五） 促进区域经济协调发展
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(6) Realizing diversification of the methods of utilizing foreign investments.
| | （六） 实现利用外资方式多样化
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(7) Improving the quality and returns of foreign loans.
| | （七） 提高利用国外贷款的质量和效益
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(8) Strengthening the macro-monitoring and full-caliber administration of foreign debts.
| | （八） 加强对外债的宏观监测和全口径管理
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IV. Policies and Measures of China on/for Utilization of Foreign Investments during the Eleventh Five-year Plan
| | 四、“十一五”我国利用外资的政策措施
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(1) Building a fairer and sounder environment for foreign investments.
| | （一） 建立更加公平、完善的外商投资环境
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(2) Strengthening the policy-based guidance to foreign investment industries and to the contribution thereof to selected regions.
| | （二） 加强对外商投资产业和区域投向的政策引导
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(3) Strengthening the implementation of resource conservation and environmental protection.
| | （三） 强化落实节约资源和保护环境
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(4) Guiding various forms of domestic and foreign-funded technical cooperation and united innovations.
| | （四） 引导多种形式的内外资技术合作与联合创新
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(5) Further strengthening the administration of borrowing of foreign loans.
| | （五） 进一步加强借用国外贷款管理
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(6) Improving the level of monitoring, controlling and managing foreign debt risks.
| | （六） 提高外债风险监控和管理水平
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(7) Maintaining national economic security and public interests.
| | （七） 维护国家经济安全和公共利益
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(8) Actively participating in the formulation and coordination of international economic rules.
The period of the Eleventh Five-year Plan is an important period when China's economic and social development connects the preceding and the following. With the environmental changes that China faces home and abroad as well as the further enlargement of China's opening up to the outside world, the main purposes of the utilization of foreign investments will be changed, and the philosophy, means, key industries, regional structure, etc. of the utilization of foreign investments will also meet great changes. To actively and effectively utilize foreign investments, and to practically transfer the focus to the bringing-in of foreign advanced technologies, management experiences and high-quality talents, are the key points for improving the quality of utilization of foreign investments during the period of the Eleventh Five-year Plan.
| | （八） 积极参与国际经济规则的制定和协调
“十一五”是我国经济和社会发展承前启后的重要时期。随着我国面临的国内外环境变化和我国对外开放的进一步扩大，利用外资的主要目的将发生变化，利用外资的理念、方式以及重点产业、地区结构等都将出现重大变化。积极有效利用外资，切实把重点转到引进国外先进技术、管理经验和高素质人才上，是“十一五”时期提高利用外资质量的关键和重点。
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I. Basic Information on China's Utilization of Foreign Investments during the Tenth Five-year Plan
During the period of the Tenth Five-year Plan, marked by the accession to the World Trade Organization, China's opening up to the outside world has entered a brand-new stage of fully participating in international economic cooperation and competition, and the utilization of foreign investments has also walked onto a new step. During the period of the Tenth Five-year Plan, the amount of foreign investments actually utilized in China totaled approximately USD 383 billion, including approximately USD 286 billion of foreign direct investments, approximately USD 38 billion of funds raised from overseas issuance of stocks, and approximately USD 46 billion of foreign loans. The amount has largely exceeded the actually completed amount during the Ninth Five-year Plan. The main features are as follows:
| | 一、“十五”时期我国利用外资的基本情况
“十五”期间，以加入世界贸易组织为标志，我国对外开放进入全面参与国际经济合作与竞争的崭新阶段，利用外资也迈上了新台阶。“十五”期间，我国实际利用外资总额共计约3830亿美元，其中外商直接投资约2860亿美元，境外发行股票筹资约380亿美元，借用国外贷款约460亿美元，大大超过了“九五”的实际完成额。主要特点是：
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(1) The scale of foreign investments has been further enlarged, and the investment modes have been more diversified. In respect of foreign direct investments, during the period of the Tenth Five-year Plan, the utilization of foreign direct investments has increased by 34% over that during the period of the Ninth Five-year Plan. China has become one of the major destination countries of international capital and investments of transnational companies. Great progress has been made in other foreign investments mainly through financing of overseas stocks. By the end of 2005, there have been 122 companies from the Mainland which were listed in Hong Kong and other overseas stock exchanges, with the raised funds totaling USD 55,544 million (excluding red chip enterprises). There have been altogether 34 overseas institutions admitted as qualified foreign institutional investor (QFII).
| | （一） 外商投资规模进一步扩大，投资方式更为多元化。在外商直接投资方面，“十五”期间，利用外商直接投资比“九五”增长超过34%。我国已成为国际资本和跨国公司投资的主要目地国之一。以境外股票融资为主的外商其它投资取得较大进展。截至2005年底，内地到香港以及其它境外证券交易所挂牌的公司有122家，累计筹资555.44亿美元（不包括红筹企业）。共有34家境外机构获得境外合格机构投资者（QFII）资格。
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(2) Prominent achievements have been made in undertaking a new round of transfer to international manufacturing industry. During the period of the Tenth Five-year Plan, China successfully caught the opportunities of structural adjustment and transfer of global manufacturing industry, absorbed large amounts of foreign direct investments in the manufacturing industry, and thus has preliminarily become one of the important production bases in the world. The foreign investments absorbed in fund-intensive and technology-intensive industries increased obviously, and many large foreign-funded projects prepared for years were implemented during the period of the Tenth Five-year Plan. Foreign-funded enterprises played good demonstrative roles in respect of technology, management and business operation philosophy, etc., propelled China's economy and enterprises to be integrated with the market and the outside world, promoted a group of internationally competitive fresh industries including electronic information, integrate circuit, light industry, textiles, household electrical appliances, common mechanical and electrical products, etc. to be formed.
| | （二） 承接新一轮国际制造业转移取得显著成效。“十五”期间，我国成功抓住全球制造业结构调整和转移的机遇，吸收大量制造业外商直接投资，使我国初步成为世界重要生产基地之一。资金技术密集型行业吸收外资明显增加，许多酝酿多年的大型外商投资项目在“十五”期间实施。外商投资企业在技术、管理以及经营理念等方面起到了良好的示范效应，推动了我国经济和企业的市场化和国际化，促进了电子信息、集成电路、轻工纺织、家用电器及普通机电产品等一批初具国际竞争力产业的形成。
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(3) Apparent progress has been made in the service industry in fully implementing the commitments for China's accession to the WTO and in the opening up to the outside world. By the end of 2005, totally 71 foreign banks from 20 countries and regions have established 238 business operative institutions in China. About a dozen of Chinese-funded commercial banks including China Construction Bank, Bank of China, Industrial and Commercial Bank of China brought in overseas strategic investments, and meanwhile China Construction Bank and Bank of Communications succeeded in overseas listing. There were altogether 4 joint venture securities companies and 20 joint venture fund management companies established upon approval. The insurance industry has, according to the commitments for accession to the WTO, been opened to foreign-funded insurance companies in all regions with the coverage of all business except relevant statutory insurances. By the end of 2005, the number of foreign-funded insurance companies has increased to 40 companies or 93 head companies and branches. Foreign-funded enterprises have become an important part in the logistics field and also in the commercial area. In 2005, the foreign investments utilized in China's service industry were more than one fifth of the total amount of foreign investments in the year.
| | （三） 服务业全面履行入世承诺，对外开放取得明显进展。截至2005年底，共有20个国家和地区的71家外国银行在中国设立了238家营业性机构。建行、中行、工行等十几家中资商业银行引入境外战略投资，建行、交行成功实现了境外上市。共有4家合资证券公司和20家合资基金管理公司获准设立。保险业已按入世承诺对外资保险公司放开了全部地域和除有关法定保险以外的全部业务，2005年底外资保险公司数量已增加到40家公司93家总分支公司。外商投资企业已成为物流、商贸领域的重要组成部分。2005年，我国服务业利用外资超过当年外商投资总额的五分之一。
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(4) Foreign loans increased steadily, and effectively supported the construction of key projects of the state. During the period of the Tenth Five-year Plan, the actually utilized foreign preferential loans throughout China amounted to approximately USD 20.7 billion, which supported 150 odd major projects, including the main dyke reinforcing projects of the Changjiang River and the Yellow River, trunk line highways in Sichuan and other provinces, some trunk line railways from Hubei province to Chongqing, the coal-bed gas project in Shanxi province, pollution treatment along the basins of Huaihe River, etc., the agricultural comprehensive development projects in the Central and Western Regions, and so on. In terms of arrangement of foreign preferential loans, the Central and Western Regions were stressed, and more than 70% of preferential loans were contributed in the Central and Western Regions. The financing avenues and ways of international commercial loans took the diversified feature. During the period of the Tenth Five-year Plan, China actually borrowed approximately USD 25.8 billion of international commercial loans (except loans granted by foreign-funded enterprises), and mainly supported some energy source and traffic projects urgently needed in national economic development as well as partial industrial projects with short construction period, optimistic economic benefits and capacity of generating foreign exchange earnings through export, for example, the hydro-power station of the Three Gorges, Ling Ao Nuclear Power Station in Guangdong, Tianwan Nuclear Power Station, Qinshan Nuclear Power Station, etc., the purchase by airline companies of airplanes, etc. Some major advanced technical equipment and key equipment which could not be manufactured in China were imported, the situation of domestic financial institutions on unsuitable structure of sources of foreign exchange funds was relieved, and the domestic institutions' capacity of allocating funds in an optimized way was enhanced.
| | （四） 借用国外贷款平稳增长，有力地支持了国家重点项目的建设。“十五”期间，全国实际使用国外优惠贷款约207亿美元，支持了150多个重大项目，包括长江、黄河的干堤加固项目，四川等省干线公路，湖北至重庆等一些干线铁路，山西省煤层气项目，淮河等流域污染治理，中西部地区农业综合开发项目等。国外优惠贷款安排坚持以中西部地区为主，70%以上优惠贷款投向中西部地区。借用国际商业贷款的融资渠道及方式呈现多样化特征，“十五”期间我国实际借用国际商业贷款（外商投资企业除外）约258亿美元，重点支持了一些国民经济发展急需的能源、交通项目以及部分建设周期短、经济效益好、有出口创汇能力的工业项目，如三峡水电站、广东岭澳、田湾、秦山等核电站、航空公司购置飞机等，引进了国内不能生产的重大先进技术装备和关键设备，缓解了国内金融机构外汇资金来源结构不匹配的情况，提高了国内机构优化配置资金的能力。
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(5) Foreign debt management capacities have been further enhanced, and the foreign debt scale is suitable with the national economic development level and the international payment situation. With regard to the tendencies that China's foreign debts took on in recent years, specifically, the flow increased by times, the total scale grew rapidly, and short-term foreign debts occupied a large proportion, the foreign debt administrative department successively promulgated relevant provisions, effectively controlled the growth of foreign debts and adjusted the foreign debt structure in time. Therefore, the debt service ratio, liability ratio, and debt-to-GDP ratio of China's foreign debts were all kept within the internationally accredited safe lines.
| | （五） 外债管理能力进一步增强，外债规模与国民经济发展水平和国际收支状况相适应。针对近年来我国外债呈现流量成倍增加、总规模迅速增长、短期外债所占比例较高的趋势，外债管理部门陆续出台了有关规定，及时有效控制外债增长并调整外债结构，我国外债偿债率、负债率、债务率均保持在国际公认的安全线以内。
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(6) The regulations and policies on utilization of foreign investments have been improved continuously, and the management level has been enhanced gradually. As required by the development of socialist market economy and China's commitments for accession to the WTO, the relevant laws and regulations on utilization of foreign investments as well as the rules and regulatory documents of all departments and localities have been cleaned up and amended in an all-round way. The “Catalogue for the Guidance of Foreign Investment Industries” has been amended for twice, the “Catalogue of Priority Industries for Foreign Investment in the Central and Western Regions” has been amended, and the “Implementation Opinions on Promoting the Old Industrial Base in Northeast China to Further Enlarging the Opening up to the Outside World” have been promulgated. Pursuant to the spirit of the State Council's investment system reform, auxiliary reform of the foreign investment utilization management system was carried out accordingly, the procedures for approval of foreign loan projects have been regularized, the approval system has been changed into ratification system for foreign-funded projects, the examination steps have been reduced, and the work efficiency has been improved.
However, during the period of the Tenth Five-year Plan, there were still some problems worth attention on utilization of foreign investments in China: Firstly, the problem of “stressing quantity but ignoring quality”, which has existed in absorption of foreign investments for long, is still prominent. Some local governments and departments blindly absorbed foreign investments without caring costs and unilaterally pursued the quantity of foreign investments, and the industrial policies of the state were broken frequently. Secondly, the leading enterprises in some industries were more and more frequently acquired and merged with foreign investments, and in a few areas, the symptom of foreign investment monopoly arose or even expanded rapidly, which might threaten the national economic security, particularly industrial security. Thirdly, the overall scale and level of the absorption by the Central and Western Regions of foreign direct investments were comparatively low, and the gap from the utilization of foreign direct investments in the Eastern Regions has been further enlarged. Fourthly, the technology spillover of foreign-funded enterprises was not apparent, and some foreign-funded enterprise abused intellectual property protection, which did no help to the independent innovations of the domestic enterprises. Fifthly, the existing foreign investment utilization administration system needs urgent improvement, and some presently applicable policies are not beneficial for creating an environment for fair competition between domestic enterprises and foreign-funded enterprises. Sixthly, a small number of foreign loan utilization projects were not administered strictly, the fund utilization efficiency was low, and the debts were difficult to be repaid. Seventhly, the proportion of short-term foreign debts increased rapidly, and the potential foreign debt risks increased.
| | （六） 利用外资的法规政策不断完善，管理水平逐步提高。按照发展社会主义市场经济的要求和我国的入世承诺，对利用外资的有关法律、法规和各部门、各地方的规章、规范性文件进行了全面清理修订。两次修订了《外商投资产业指导目录》，修订了《中西部地区外商投资优势产业目录》，发布了关于促进东北老工业基地进一步扩大对外开放的实施意见。按照国务院投资体制改革精神，利用外资的管理体制进行了配套改革，规范了国外贷款项目的审批程序，对外商投资项目由审批制改为核准制，减少了审核环节，提高了工作效率。
“十五”期间我国利用外资仍存在一些值得关注的问题：一是长期存在的引进外资“重数量轻质量”的问题仍然比较突出，一些地方政府和部门不计成本盲目招商引资，片面追求引进外资的数量，违反国家产业政策的现象时有发生。二是部分行业龙头企业被外资并购情况增加，个别领域出现外资垄断或垄断迅速扩大的苗头，可能对国家经济安全特别是产业安全形成威胁。三是中西部地区吸引外商直接投资规模和水平总体比较低，与东部地区利用外商直接投资差距进一步扩大。四是外商投资企业带来的技术外溢作用不够突出，部分外商投资企业滥用知识产权保护，不利于我国企业自主创新。五是现有的利用外资管理体制亟待完善，部分现行政策不利于创造内外资企业公平竞争的环境。六是少数利用国外贷款项目管理不严、资金利用效率低、偿债困难。七是短期外债比例增长较快，潜在的外债风险增加。
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II. Guiding Ideology and Overall Strategic Objective of China's Utilization of Foreign Investments during the Eleventh Five-year Plan
During the period of the Eleventh Five-year Plan, the overall domestic and foreign environments that China faces in respect of utilization of foreign investments still tend to be good, and have created conditions for China to improve the quality and level of utilizing foreign investments, and to continue maintaining a large scale in utilizing foreign investments, as well. Meanwhile, the period of the Eleventh Five-year Plan is also a period when the external environmental restrictions and internal risks of China's economic development are centralized. On one hand, the world economic growth is still accompanied with uncertain factors, the global economic development is unbalanced, the international financial market is still possible to suffer from violent turbulence, the tendency of trade protectionism is obvious, and the contention between all countries for international capital becomes increasingly severe. On the other hand, there still exist some prominent problems, for example, the energy sources and mineral resources in China are relatively insufficient, the ecological environment is frail, the economic growth mode is slowly changed, and the comparative advantages of labor force cost have been weakened.
．．．．．． | | 二、“十一五”我国利用外资的指导思想和总体战略目标
“十一五”时期，我国利用外资面临的国内外环境总体上仍然趋好，为我国提高利用外资质量和水平、继续保持利用外资较大规模创造了条件。同时“十一五”时期也是我国经济发展的外部环境制约、内部风险较为集中的时期。一方面，世界经济增长仍存在不确定因素，全球经济发展不平衡，国际金融市场发生剧烈动荡的可能性依然存在，贸易保护主义倾向明显，各国对国际资本的争夺日趋激烈。另一方面，我国能源和重要矿产资源相对不足，生态环境比较脆弱，经济增长方式转变缓慢，劳动力成本的比较优势有所减弱等问题比较突出。
综合国内外形势初步判断，“十一五”时期，我国利用外资将出现新的变化：从区域结构看，随着东部地区生产要素成本的上升，中西部地区将迎来利用外资的良好机遇，顺利实现外商投资的梯次转移将成为中西部地区利用外资面临的重要任务。从产业结构看，“十一五”时期将是中国服务业改革与发展的重要时期，服务业尤其是现代服务业将成为外资加速进入的行业。从投资规模看，由于国内传统制造业投资已出现饱和趋势，国内要素成本的上升和能源资源的制约，将加大外商投资的成本并对“十一五”时期外商投资的增速产生较大影响。从利用外资方式看，国家和企业信用水平不断提高，人民币汇率形成机制以及其他相关体制的改革不断推进，较大规模的外汇储备和国内投资银行业的日益发展，为我国以多种方式利用外资、降低金融风险提供了条件。国内传统产业布局已基本完成，新建投资与企业并购均成为外商直接投资的重要方式。
“十一五”期间，我国利用外资的指导思想是：以邓小平理论和“三个代表”重要思想为指导，全面贯彻落实科学发展观，积极有效利用外资；统筹国内发展和对外开放，妥善处理好利用外资与国际收支平衡、利用外资与用好国内资金之间的关系，促进国内产业结构、区域经济结构的调整优化，切实提高利用外资的质量；推动建立更加开放的自主创新体系，增强集成创新能力和引进消化吸收再创新能力；在扩大开放中积极主动抵御和化解各类风险，切实保障国家经济安全；进一步巩固、发挥和创造我国的比较优势，实施互利共赢的开放战略，在更大范围、更广领域和更高层次上积极参与国际经济科技合作与竞争。
“十一五”期间，我国利用外资的总体战略目标是：进一步推动利用外资从“量”到“质”的根本转变，使利用外资的重点从弥补资金、外汇不足切实转到引进先进技术、管理经验和高素质人才上，更加注重生态建设、环境保护、资源能源节约与综合利用。通过引进国外先进技术和管理，发挥外资企业对国内企业的引导、辐射作用，促进我国集成创新能力和引进消化吸收再创新能力的提高；努力实现外商投资从简单的加工、装配和低水平生产制造层次进一步向研究开发、高端设计、现代流通等新领域拓展，推动我国成为世界高附加值产品的制造基地之一；较大程度提高服务业对外开放水平；显著提高中西部地区和东北地区等老工业基地利用外资的规模、质量和水平，进一步增强东部地区经济国际化程度和国际竞争力；积极、合理、高效地使用国外优惠贷款，更加注重贷款使用的质量与效益；加强对外债结构和使用方向的调控，严格防范外债风险；利用外资总规模要在“十五”基础上保持平稳增长；到2010年，利用外资的管理体制更加合理有效，利用外资与国内经济社会发展更加协调。
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