New ways should be found to increase farmers' incomes, the document said. The country should encourage farmers to optimize their planting structure, help them develop non-agricultural industries in grain production areas, facilitate their employment in urban regions and increase their wages.

The rural development system would be improved in the next five years. The law on land contracts in rural areas would remain unchanged. Land revenues and farmers' deposits would be used to support rural development. Counties with mature conditions would be allowed to set up their own community banks and offer small loans to farmers. The government would continue the forest tenure reform.

The draft of the 12th Five-Year Program (2011-2015) for National Economic and Social Development is subject to approval by the National People's Congress, China's top legislature, when it convenes its annual session next year.