Practice of National Development and Reform Commission and Harmonious Mining Area Construction

(I) Historical context of the transformation and development of resource-exhausted cities

Since the 21st century, the CPC Central Committee and the State Council have attached great importance to the problems in resource-exhausted cities in Northeast China, and relevant state departments have also begun to study and promote the sustainable development of resource-exhausted cities. In the outline of the tenth five-year plan in 21, it was clearly put forward for the first time to promote the development of continuous industries and alternative industries in resource-exhausted cities. In the same year, the State Council identified Fuxin, Liaoning Province as the first pilot city for economic transformation of resource-exhausted cities in China. In 22, the report of the 16th National Congress of the Communist Party of China further clarified the policy of supporting cities and regions that mainly exploit resources to develop the continuous industries. In 24, the State Council set up a leading group office to revitalize the old industrial bases in Northeast China, and promoted the sustainable development of resource-based cities as an important task to revitalize the old industrial bases. Following the pilot project of economic transformation of resource-exhausted cities in Fuxin City, with the consent of the State Council, Daqing City, Yichun City, Liaoyuan City, baishan city City and Panjin City with different resource types and different mining stages were selected to carry out the pilot project of economic transformation, and the problems of mine bankruptcy and shantytown renovation were investigated several times with relevant departments, and policy suggestions were put forward to the CPC Central Committee and the State Council, and the transformation of shanty towns in local coal mines was initiated first.

In August, 25, Premier Wen Jiabao stated in the report "Solving the Population and Development Problems of Resource-exhausted Cities with Scientific Outlook on Development as a Whole" submitted by the National Family Planning Commission to the State Council that solving the poverty, unemployment and environmental problems in resource-exhausted cities is an important task that cannot be ignored in implementing Scientific Outlook on Development, building a harmonious society and realizing the goal of a well-off society, and asked the National Development and Reform Commission to study and put forward opinions with relevant departments. In the same year, the "Proposal of the Central Committee on Formulating the Eleventh Five-Year Plan for National Economic and Social Development" clearly put forward the strategic policy of "promoting the economic transformation of resource-exhausted cities and realizing revitalization in reform and opening up". The Eleventh Five-Year Plan adopted in 26 clearly put forward "doing a good job in the pilot project of economic transformation in resource-exhausted cities" and "establishing compensation mechanism for resource development and assistance mechanism for declining industries". In the same year, in the Decision of the Central Committee of the Communist Party of China on Several Major Issues Concerning the Construction of a Harmonious Socialist Society, it was regarded as one of the important contents of promoting coordinated regional development and building a harmonious socialist society to "establish and improve the paid use system and compensation mechanism for resource development and implement supporting measures for economic transformation in difficult areas where resources are declining and exhausted". The report of the 17th National Congress of the Communist Party of China in 27 and Several Opinions on Promoting the Sustainable Development of Resource-exhausted Cities (hereinafter referred to as "Several Opinions") once again emphasized the promotion of economic transformation of resource-exhausted cities.

"Several Opinions" is the first comprehensive guiding document dedicated to the sustainable development of resource-based cities since the founding of New China, which indicates that the pilot project of economic transformation of resource-exhausted cities in China has entered a comprehensive stage. Since then, the Opinions on Further Implementing the Revitalization Strategy of the Old Industrial Bases in Northeast China in 29 (Guo Fa [29] No.33), the Outline of the Twelfth Five-Year Plan in 21 and the annual government work report of the State Council all regard helping resource-exhausted areas realize economic transformation and promoting the sustainable development of resource-exhausted areas as important tasks for governments at all levels at present and in the future. According to the requirements of "Several Opinions", the relevant state departments have established the determination principles and related indicators of resource-exhausted cities on the basis of full investigation and soliciting opinions from all sides. Since 28, the State Council has identified 69 cities and 9 county-level units in large and small Xing 'an Mountains in three batches nationwide, which are included in the central government's policy of supporting the economic transformation of resource-exhausted cities. For 11 cities such as Liaoyuan City and Fuxin City, which have not completely solved the historical problems left over from the first batch of transformation pilot cities and have weak sustainable development ability, it is decided to extend the financial transfer payment period of the central government until 215. In December 21, the State Council officially approved the establishment of "Shanxi National Resource-based Economy Transformation Comprehensive Reform Experimental Zone". This is not only the ninth national comprehensive reform pilot zone established in China, but also the only systematic national comprehensive reform pilot zone covering the province. The promulgation of "Several Opinions" and Shanxi Province's approval of the national comprehensive supporting reform pilot zone for resource-based economic transformation indicate that China has entered a new historical stage to promote the economic transformation and sustainable development of resource-exhausted cities, and the economic transformation of resource-exhausted cities has been pushed from some pilot cities in some provinces to all resource-based cities in China (Mark et al., 212). By the end of 212, the state had invested 3.3 billion yuan to provide financial support for the transformation of 69 resource-exhausted cities nationwide.

(II) Achievements in the economic transformation of China's resource-exhausted cities

Under the correct leadership of the central government, under the coordination and organization of relevant state departments, and with the concerted efforts of relevant provinces, cities and resource-exhausted cities, the economic transformation of China's resource-exhausted cities has achieved remarkable results and accumulated experience for the transformation of the economic development mode of the national resource-exhausted cities.

1. Significant economic and social changes have taken place in resource-exhausted cities

First, the situation of long-term low-speed economic growth has been broken. During the "Eleventh Five-Year Plan" period, the regional GDP of the first batch of 12 pilot cities for economic transformation increased by 1.5% annually, which was higher than the national average. At the same time, the single industrial structure has changed. The proportion of mining industry in regional GDP has dropped from 18.3% in 26 to 12% in 21, and the proportion of non-traditional industries has been rising.

Second, people's ideas and mental outlook have changed greatly. Through the practice of transformation, the cadres and the masses in resource-exhausted cities saw hope, strengthened their confidence, reversed the decline, stepped out of anxiety and hesitation, cheered up and worked hard, forming a good atmosphere in which everyone cared about, supported and participated in the transformation.

thirdly, important steps have been taken in institutional innovation. Driven by reform, cities in transition have effectively cracked the deep-seated institutional and institutional contradictions accumulated over the years. By deepening the reform of the property right system of state-owned enterprises, the operating mechanism of enterprises has been transformed, and the shareholding system and privatization reform of state-owned enterprises have been realized, which has made enterprises glow with vitality.

Fourth, the replacement industry has begun to take shape. Transition cities are market-oriented and enterprises-oriented. While upgrading and extending traditional industries, they vigorously develop alternative industries, and take optimizing and upgrading industrial structure as the fundamental way out for sustainable development. On the basis of promoting the integration of existing factors and mergers and acquisitions, we will actively introduce foreign funds and well-known enterprises, accelerate the development of emerging industries such as equipment, food, textiles and clothing, modern biology, electronic information and new materials, and use mine sites to develop tourism.

Fifth, the ecological environment construction and the treatment of subsidence areas have achieved remarkable results. Taking the renovation of ecological environment as a breakthrough, cities in transition have reduced energy consumption and emissions of pollutants such as sulfur dioxide and nitrogen oxides by increasing investment in ecological environment restoration and strengthening comprehensive management of geological disasters and environmental pollution, improved urban greening coverage, improved urban ecological environment and human settlements as a whole, and improved people's living quality significantly.

Sixth, people's livelihood has been initially improved. Cities in transition make full use of newly-increased local financial resources and central financial resources to transfer payment funds, and strive to solve many problems, such as unemployment, treatment of subsidence areas, shantytown renovation, improvement of social security system, and arrears of wages of employees by enterprises, so that the broad masses of the people can benefit from the transformation, the income of urban and rural residents can be greatly improved, and the social security, education, culture and medical and health level can be comprehensively improved.

2. The policy support system for promoting the economic transformation of resource-exhausted cities has been initially formed

First, the central financial transfer payment system for resource-exhausted cities has been established. The state has identified 69 resource-exhausted cities in China in three batches, and 9 county-level units in large and small Xing 'an Mountains have been identified to implement the financial transfer payment policy for resource-exhausted cities with reference. More than 1 provinces (autonomous regions) in China have also introduced supporting policies, set up special funds, and introduced measures for the management of central financial transfer payment subsidies.

second, the transformation of shanty towns in coal mines, forestry and industrial and mining areas has been fully rolled out. On the basis of the pilot reform of local coal mine shanty towns in northeast China, the reform of local coal mines in central and western China and the reform of forestry shanty towns and industrial and mining shanty towns were started, and policy and financial support were given.

third, the state has set up special funds for the transformation of alternative industries and special loans for sustainable development. At present, the central government has arranged billions of yuan in the central budget. China Development Bank has signed memorandums of cooperation with some pilot cities, and selected some resource-exhausted cities to pilot first, and has signed financing agreements of 32 billion yuan with the first batch of six pilot cities. The Ministry of Land and Resources has also increased its financial support for mine environmental management in resource-exhausted cities.

Fourth, the system of policies and regulations to promote the sustainable development of resource-based cities has been initially established. The relevant state departments have promulgated the Trial Measures for the Management of Reserve for Sustainable Development of Resource-based Cities, and the Regulations on Sustainable Development of Resource-based Cities have also entered the preliminary work of national legislative planning. The pilot reform of resource tax has been first implemented in Xinjiang and other places, and relevant domestic provinces and cities have also promulgated policies and regulations to promote the sustainable development of resource-based cities in this region.

Fifth, an evaluation mechanism for the economic transformation effectiveness of resource-exhausted cities has been established. At present, the state has conducted a comprehensive evaluation of the economic transformation effect of the first batch of resource-exhausted cities, given classified support to cities at different stages of development according to the evaluation results, established a financial support mechanism of classified guidance, rolling promotion and getting in and out, and started the compilation of the national sustainable development plan for resource-exhausted cities.

3. The working mechanism for promoting the economic transformation of resource-exhausted cities has been initially established

China has initially established a working mechanism for promoting the economic transformation of resource-exhausted cities with national, provincial and resource-based cities as the main body. For the first time, the National Development and Reform Commission set up the Development Department of Resource-exhausted Cities, which is responsible for the daily work of economic transformation and sustainable development of resource-exhausted cities, and takes the lead in coordinating relevant state ministries and commissions to study, formulate and draft relevant policies and regulations. Relevant provinces and cities have set up special institutions in accordance with the requirements of the provincial government's overall responsibility, and actively study and formulate implementation opinions on promoting economic transformation and sustainable development of resource-exhausted cities in their own provinces and regions. Many provinces and cities have established a working leading group or a working joint meeting system led by the main leaders, defined the working objectives and tasks, and issued a comprehensive policy document to implement the economic transformation of resource-exhausted cities, guiding, coordinating and solving major problems in the economic transformation of resource-exhausted cities. Each resource-exhausted city has also set up a transformation office, which is responsible for the formulation and implementation of the transformation plan.

(III) Basic experience and enlightenment of the transformation of China's resource-exhausted cities

1. Basic experience

(1) Institutional innovation must be regarded as a powerful driving force to promote the economic transformation of resource-exhausted cities. For China, which is in the process of economic and social transformation, both resource-based cities and non-resource-based cities should deepen reforms to solve many contradictions and problems in their social and economic development. Especially for resource-exhausted cities, only through reform and institutional mechanism innovation can we solve the institutional, structural and social contradictions and problems that have long restricted the social and economic development of cities and realize the sustainable development of resource-exhausted cities. Resources can be exhausted, but people's creativity will not be exhausted. Therefore, we must unswervingly implement the spirit of reform and innovation in all aspects of the economic transformation of resource-exhausted cities, take emancipating the mind and changing the concept as the guide, and take the innovation of system and mechanism as the driving force to accelerate the reform of resource-exhausted cities and promote the transformation from resource-exhausted cities to innovative cities. Build a dynamic, efficient and more open system and mechanism conducive to scientific development, enhance the vitality and internal motivation of sustainable development of resource-exhausted cities, and embark on the road of transformation from resource dependence to innovation. Rely on scientific and technological progress to accelerate the transformation, and constantly enhance the support of innovation for urban transformation.

(2) we must take the transformation of economic development mode as the main line of economic transformation of resource-exhausted cities. The economic transformation of resource-exhausted cities is not simply to replace old industries with new industries, but to change the mode of economic development. If we don't make efforts to change the mode of economic development, that is, replace the old industries with new industries, it will only bring temporary prosperity, and ultimately we will not be able to get out of the cycle of recession. To implement Scientific Outlook on Development and accelerate the transformation of economic development mode, the most important thing is to solve the contradiction between the limitation of natural resources and environmental capacity and sustainable development. Therefore, the transformation of economic development mode must run through the whole process of economic transformation of resource-exhausted cities, promote urban transformation with the transformation of development mode, organically combine urban transformation with the overall promotion of industrialization, urbanization and agricultural modernization, and coordinate the relationship between current and long-term, total and structure, and overall and local. At the same time, we should combine the cultivation of strategic emerging industries with the transformation and upgrading of traditional advantageous industries, combine planned development with promotion of transformation, and strive to realize the transformation from extensional growth to connotative growth, from extensive growth to intensive and efficient growth, and from mining and resource exploitation to the coordinated development of three industries.

(3) We must focus on solving people's livelihood issues as the starting point and the end result of economic transformation in resource-exhausted cities. This is the most valuable experience for all resource-exhausted cities to achieve effective economic transformation. Urban transformation must be people-oriented, and people can't get benefits after the transformation, but get benefits during the transformation. The purpose of transformation is to make people's livelihood live better, so people's livelihood issues are the core and foothold of transformation. It should be noted that in the planned economy period, China's resource-exhausted cities have made historic contributions to the country's social and economic development, but they have also paid a huge price. Due to the incomplete system transition, the historical debts of these cities in terms of people's livelihood are hard to return. Therefore, it is necessary to make the transformation process a process in which the people benefit, otherwise the transformation will be difficult to advance. Only by making the people benefit in the process of transformation can we create a harmonious and stable environment and win the support of the people in the transformation. The reason why many resource-exhausted cities in China can successfully embark on the road of economic transformation is to find the combination point of improving people's livelihood and economic transformation, firmly grasp the difficult problems that are closely related to people's production and life and need to be solved urgently, and win the understanding and support of the people with practical actions.

(4) we must take vigorously developing the private economy as the breakthrough of economic transformation in resource-exhausted cities. Employment is the biggest problem faced by all resource-exhausted cities in China, which is closely related to the vital interests of everyone in the city. Solving the employment problem requires both large leading enterprises and countless small and medium-sized enterprises that can fully absorb employment, and the development of small and medium-sized enterprises depends on the development of private economy. Therefore, we should vigorously develop the private economy and implement a series of national policies and measures to encourage the development of small and medium-sized enterprises and private investment. Through policy guidance and optimization of the service environment, the "national entrepreneurship" activity will be promoted, the people's entrepreneurial enthusiasm will be stimulated, the people's independent entrepreneurial spirit will be respected and brought into play, employment will be promoted by entrepreneurship, and the role of the private economy in attracting employment will be brought into play, so that the private economy will become a new economic growth point for resource-exhausted cities. Only by mobilizing all forces can we truly achieve transformation for the people, transformation depends on the people, and transformation results.