How will Wuhan Yangluo Development Zone develop?

There are certain procedures for the establishment of development zones. Their establishment, operation and policy preferences are all reviewed and approved by provincial, municipal and county-level people’s governments, and are all legal acts. However, in A large number of development areas were destroyed in each "clean-up storm".

At the end of September 2007, in the golden autumn, at the "Sustainable and Healthy Development Forum of National Economic and Technological Development Zones" of the 10th China International Trade and Investment Fair held in Xiamen, Sun Peng, Deputy Director of the Foreign Investment Department of the Ministry of Commerce The "China National Economic and Technological Development Zone Development Report (2006)" released on behalf of the Ministry of Commerce revealed that national economic and technological development zones that are poorly run and do not meet the requirements of the State Council will be given a "yellow card" warning or even revoked. As soon as the news came out, it caused quite a shock in many development zones. Development zones in many places became crisis-ridden and even in danger.

In 1984, in order to promote coastal economic development, the central government established economic and technological development zones in coastal areas, ushering in a new era of economic development zones. Since then, with the approval of the national or local governments, specific economic regions have sprung up with clear scope delineated to attract foreign investment, develop high-tech, and promote regional economic development, and implement relatively special systems and preferential policies. At present, there are countless development zones under various names such as national economic and technological development zones, national high-tech industrial development zones, bonded zones, export processing zones, national tourist resorts, border economic cooperation zones and various parks approved by local governments at all levels.

While developing vigorously, various problems in the development zones have also emerged one after another, causing the country to spend huge efforts to rectify the development zones several times. From 1993 to 1994, the state rectified irregular development zones; in 1997 and 1998, the state froze the approval of construction land for two consecutive years; from 2003 to 2004, the State Council suspended the approval of various development zones, and the National Development and Reform Commission, the Ministry of Land and Resources, the Ministry of Supervision, and Five ministries and commissions including the Ministry of Construction and the Audit Office have vigorously rectified the construction land in development zones. Under the new land policy, relevant national ministries and commissions are also determined to renovate development zones.

After several rectifications and exposures, many long-standing unreasonable phenomena in the current land use status of development zones and problems that need to be solved urgently in operation are shocking.

The poor utilization of resources caused by excessive land in development zones has also caused numerous social problems. In many places, this is first reflected in the issue of resettlement of farmers. At the same time, illegal and corruption problems caused by low land prices in development zones are also common. According to surveys, 80% of illegal land use in my country is currently caused by local governments. In some local development parks, land transfer fees are far lower than the cost price, and fiscal funds are used to subsidize land development costs. This not only places a huge financial burden on local governments, but also causes a large loss of state-owned assets. According to statistics, in recent years, illegal The loss of state-owned assets caused by land transfer and transfer can reach tens of billions of yuan every year. Development zones built randomly in various places are very arbitrary in the implementation of investment promotion policies, and this arbitrary nature makes it possible for power rent-seeking and becomes a breeding ground for corruption.

In terms of national tax collection and administration, development zones have also been repeatedly criticized. During a special audit, the National Audit Office found that 80 development zones in six provinces and autonomous regions lost 6.5 billion yuan in tax revenue due to irregular operations under the dual tax system, in addition to normal tax reductions and exemptions. In fact, current development zone policies still face many challenges from the WTO. As a type of special economic zone, the development zone must be included under the WTO framework and fully comply with relevant agreements and provisions. How development zones can fully comply with relevant WTO provisions is still a difficult problem in many places.

Even if the development zone does not have these shortcomings, as resources and land conditions change, the government's supportive policies for the development zone are likely to undergo considerable changes in the next five years. Will the development zone be successful by then? There are still doubts about the "upgrading" of land; once the development zone fails to achieve considerable industrial agglomeration benefits and instead becomes a burden on the local economy, it will only die.

There are certain procedures for the establishment of development zones, and their establishment, operation and policy preferences are all reviewed and approved by provincial, municipal and county-level people’s governments, and they are all legal acts. However, in A large number of development areas were destroyed in each "clean-up storm". The central government has made great efforts to rectify the situation time and time again, but the "enclosure trend" and "tax evasion trend" have resurfaced again and again. Why do development zones form this strange cycle of “governance followed by chaos, chaos followed by regulation”? First of all, our country's current cadre assessment focuses on the amount of investment and economic aggregate as indicators. The assessment standard is single and the incentive system is distorted. As a result, local governments only focus on quantity and not quality in the construction process of development zones. Local government leaders regard the construction of the park as a "performance project" and "image project" and are keen on engaging in some "new themes" and "big projects". , and ultimately manifested themselves in blindly making a fuss about expansion of land, and even enclosing a large amount of land.

Even in some places that really want to develop the economy through the construction of development zones, some local governments still have insufficient understanding of development zones as investment vehicles, thinking that development zones are just encircling a piece of land. This has resulted in insufficient attention being paid to the construction of investment vehicles (including hardware and software) and only focusing on land. Driven by regional interests, they blindly seek expansion and acquire large amounts of land. After land acquisition, if you want to "build a nest" but do not have enough funds, due to location conditions, carrier construction and other reasons, you cannot attract "phoenixes". It is even more impossible to "attract phoenixes to build a nest", and rolling development cannot be realized.

Objectively speaking, various types of development zones in my country are subject to the approval and management of different departments, and the development and management of development zones are mostly led by the government. They are tax sources and performance projects for governments at all levels, so there is "One city, multiple districts" has formed a situation of simultaneous development of national, provincial, and township-level development zones.

In terms of internal operations in development zones, most development zones currently implement a development model that integrates administration and enterprise. The characteristic is that the administrative agencies of the development zones have dual functions of managers and developers, and the work efficiency is high. In the early stages of development, managers have a greater active role, which is a common development method in the early stages of development zone construction. However, with the continuous development and growth of development zones in various regions, the disadvantages of this model have gradually emerged: development zone planning dominated by local consciousness and local interests, similar industrial layout, duplication of investment in infrastructure, and vicious competition. A government official who has worked in a development zone in East China for many years said worriedly.

In development zones below the provincial level where the most problems exist, the decentralization of land approval rights in violation of regulations is also an important reason for inducing violations. Nowadays, when various regions decentralize management rights such as foreign trade, industrial and commercial administration, they also decentralize land development management approval rights. In town and village-level industrial parks, the actual land disposal rights are in the hands of townships, towns, villages and villager groups. In the process of attracting investment, after rural grassroots organizations clarify the land use conditions through negotiation, villages and towns are responsible for submitting land use applications to the municipal land and resources department and ensuring that land use approval documents are obtained. The municipal land management department has only become a department that completes procedures, and the approval power of the land management department is actually delegated to the grassroots government.

The development zone blindly enclosed the land after approval, without strict standards and procedures for land use, and the planning was unreasonable or without authority. Enterprises entering the park enclosed land within the park. Out of a strong desire to attract investment, managers did not have enough motivation to regulate this behavior. As a result, the land output rate was low. Due to the extensive use of industrial land and the increase in economic aggregate, parks with many projects have begun to feel that there is a shortage of construction land, but there is also a phenomenon that a large amount of land is occupied and idle.

Although many development zones face layer upon layer of problems, industry experts still remind that development zones are generally in line with the laws of economies of scale and uneven development of the market economy, and in line with Deng Xiaoping Theory and the policy of opening up to the outside world. In line with international practice and the needs of my country's economic development, it has strong vitality and development prospects. Some development zones below the provincial level that are in line with the development of the times have made huge contributions to regional development, economic construction, and employment. Therefore, they should be rectified or merged according to the actual situation during the rectification, and cannot be generalized and denied.

The "Report" stated, "Practice has proven that the park development model of 'concentrated layout, industry agglomeration, and land intensive', with national economic and technological development zones as a typical example, under the new situation of increasing land and energy shortages and increasingly urgent environmental protection , continues to play an important role.”

On the road to rebirth of many local development zones, there is a relatively consistent understanding that promoting development zones into the “post-development zone era” may be the best way out.

To enter the "post-development zone era", there is no doubt that institutional innovation is the fundamental guarantee. "In the past two decades, my country's development zones have made great achievements thanks to institutional innovation. When the development zone economy begins to take shape and repeated construction hinders its further development, it must also rely on institutional innovation." A well-known economist So commented.

Many scholars have suggested that the innovation of the development zone system should replace the administrative district management model with an enterprise management model, that is, transition from government-led to market-led, so that the development zone can change its role as an administrative district under the local government. Or administrative agency, it becomes an enterprise-type organization, the development zone manager becomes an independent market interest subject, and the development zone becomes an economic entity with the main business of land development and management, industrial investment, management services, etc., and realizes the intrinsic value of the enterprise for its business objectives. This can not only effectively avoid the indiscriminate establishment of development zones and vicious competition caused by governments at all levels based on their own interests, but also achieve market-oriented allocation of development zone resources. The enterprise management model has been practiced in the development process of development zones at home and abroad. Singapore's Jurong Industrial Park and some national development zones in my country have set good examples.

Facing the development bottleneck of some high-quality development zones on land, the industry suggests that the country should provide excellent development zones with higher input-output levels (higher land intensity) within the scope of urban master planning. Considering the current situation of large output per unit area of ??land and high profits and taxes paid, we should give priority to solving the land problem as a whole, or agree to achieve a dynamic balance in the amount of cultivated land by reclaiming and supplementing cultivated land across regions, so as to further enhance the development momentum of the development zone. .

In terms of exit from development zones, the development zone exit mechanism mentioned in the "Report" is very popular. Indeed, the status and role of development zones determine that the construction of development zones can only be the "icing on the cake" and must not be a "timely help" or "poverty alleviation project". Academic circles generally believe that in order to change the phenomenon of too many and excessive development zones across the country and the waste of land resources in some development zones, a mechanism for the survival of the fittest in development zones must be established. That is, the national development zone management department will formulate development plans with the efficient use of land as the core. District assessment indicators and assessment methods (such as development zone land use evaluation system, etc.). If the indicators are met, the state will provide key support. If the assessment fails, the land approval and use will be downgraded, restricted or stopped.

Some people also suggested that in view of the fact that there are still many small-scale development zones with poor objective conditions in various places, while cleaning up and rectifying them, in order to rely on their own strength to increase infrastructure investment in the short term, Improving management service levels, investment project quality and development efficiency is difficult to achieve. Therefore, the acquisition and merger of development zones through market mechanisms will fundamentally solve the problems of “one city with multiple districts” and duplication of functions and similar industries.

At the same time, we must speed up the formulation of a unified national development zone law to provide legal protection for the further development of development zones. Since the development zone is not a first-level government, it has no legislative power and only has certain economic management authority and some social management authority. The legal status of the development zone is still unclear, which leads to departmental division, overlapping functions and unsmooth policies during the development process of the development zone. etc. questions. At present, provincial governments generally formulate local regulations such as the "Regulations on the Management of Economic and Technological Development Zones", but national laws on economic and technological development zones have not yet been promulgated, which has become an important factor restricting the future development of economic and technological development zones. Therefore, it is necessary to speed up the formulation of a unified national development zone law to clarify and protect the legal status of development zones and promote the sustainable, stable and healthy development of development zones.

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