Practical thinking on dual management mode of development zone: amoeba management mode

Present situation and development trend of domestic development zone management mode. Development zone is a special administrative region designated by the government, which gives priority to encouraging industrial construction in a country or region to promote economic development. In China, development zones refer to economic and technological development zones, high-tech industrial development zones, bonded zones, national tourist resorts, export processing zones and other development zones established in urban planning areas with the approval of the people's governments of the State Council, autonomous regions and municipalities directly under the Central Government, in which economic and technological development zones and high-tech industrial development zones are the most common.

The management mode of development zone is the management rule to maintain the benign operation of development zone. Worldwide, the management modes of development zones are mainly divided into single management (including government management and university management) and multiple management (company management and foundation management). The main management modes of domestic development zones include the unified management committee system of quasi-government, the dual management mode of integration of development zones and administrative regions, and the diversified management mode of taking enterprises as the main body and having more than two management subjects at the same time. [ 1]

There are advantages and disadvantages in three different management modes of development zones, and how to choose the appropriate management mode has become the primary problem in the process of establishing development zones. The main factors influencing the choice of development zone management mode are:

1. Positioning factor

The management mode of development zone is related to the orientation and administrative division of development zone. First of all, in the development of new urban areas in China, the function of development zones is to attract foreign investment and develop the economy. Usually centralized management mode, quasi-government or enterprises carry out economic construction while exercising management rights. Secondly, the development zone is located in the existing urban area of the city. The development zone not only undertakes the function of economic development in the new area, but also takes into account the function of old city reconstruction, and adopts the centralized management mode led by the government. The development zone is integrated with the old city. Using the existing infrastructure, especially relying on universities and academy of sciences to build industrial parks, such as Peking University Science Park, we can adopt centralized management mode or dual management mode. [2]

2. Factors of national economic system reform

In China, the development zone is the product of the transformation of economic system from planned economy to market economy. Development zone is not only the frontier of economic construction and urban construction, but also the position of economic system reform and innovation. Especially since the reform and opening up, fruitful attempts have been made in adjusting government functions and establishing a market economy mechanism. Accordingly, the management mode of the development zone is closely related to the economic system reform. The higher the degree of marketization of economic development zones, the less the planned economy interferes with their actual management. On the contrary, the more intense the planned economy is.

3. Government management system factors

The government plays an important role in the management of development zones in China. The government itself has vertical (superior and subordinate) and horizontal (same level) administrative jurisdiction when performing administrative functions. Vertically, such as the relationship between central and local governments, provinces and cities, cities and counties; Horizontal contact and cooperation between departments of land, planning, finance and personnel. These two relations also have a far-reaching impact on the management mode of the development zone. From a vertical perspective, many innovative preferential policies and measures formulated by the development zone are difficult to be approved and implemented by the higher authorities. Horizontally, the connection and coordination between government departments have hindered the development of the development zone to a great extent.

4. Fiscal and tax policy factors

An important factor affecting the management mode of development zones in China is the current tax system. On the premise of implementing the central and local tax sharing system in China, on the one hand, governments at all levels, as managers of development zones, try to attract funds from various enterprises and increase local fiscal revenue through the development, investment and construction of development zones; On the other hand, the development company, as the manager of the development zone, can't get the tax, which makes the management mode of this kind of development zone unsustainable.

With the gradual deepening of reform and opening up, influenced by external factors and changes in its own development situation, and driven by marketization, urbanization, globalization and informationization, the management mode of development zones in China presents a single management mode led by the government or enterprises, a dual management mode of government-enterprise cooperation, and a diversified management mode of government, enterprises, universities and scientific research institutions. With the continuous practice of domestic development zones, the management mode of development zones is constantly changing, mainly showing the following trends:

The first is to change from being a government and an enterprise to a simple government function. After years of development, some development zones have basically used up their development land and need to be expanded; Some independent new development zones have changed from simple manufacturing, processing and production zones to comprehensive zones combining industry, life and commerce, and economic and technological development zones have changed from simple economic functions to urban functions. Because the original quasi-government management system can not meet the needs of functional diversification, the management system of some development zones began to change from quasi-government system to administrative region management system.

The second is the change from decentralized management to centralized management. At present, there are not only national economic and technological development zones and high-tech development zones in China, but also provincial and municipal development zones, district and county development zones and even township development zones. Therefore, many areas began to gradually centralize the scattered development zones for management.

The third is to change from policy competition to institutional competition. Development zones mainly rely on infrastructure conditions and preferential policies to attract investors. The tax exemption policies of various parks in different places are similar. In some areas, tax reduction and exemption has been as long as 8 ~ 10 years, and even zero land price has been implemented, so there is not much room for policy concessions to increase. Therefore, in recent years, the competition of attracting investment between development zones has begun to become the competition of system innovation, government efficiency and service system. At present, several development zones in China compete with each other in system construction and transformation of government functions. At the same time, the development zone is also developing towards specialization and clustering.

The problem of dual management mode;

A Case Study of Xi 'an Aerospace Base

No matter how the development trend of development zone management mode evolves, the role and position of government and market and their functional boundaries are an important theoretical proposition that cannot be avoided. Under the dual management mode, there are two management subjects, the government and the enterprise. The government has set up an organization-the Development Zone Management Committee. The management personnel of the enterprise and the Management Committee cross each other, and their peers conduct the administrative management, development and construction affairs of the Development Zone. The Administrative Committee of the Development Zone has realized the innovation of organizational management, personnel management through administrative dispatch, flexibility of leadership positions and authorization through enterprise market-oriented management mode and centralized management system, and innovation of performance management through vertical delegation and matrix organizational structure with wide functions and few institutions. Its successful practice has provided many inspirations for our government's management innovation. [3] However, in the practice of dual management of development zones in China, there are also problems that the government and enterprises compete for profits and restrict each other, resulting in low management efficiency.

Take Xi 'an National Civil Aerospace Industry Base as an example. Xi 'an Aerospace Base is the second national civil aerospace industrial base in China after Shanghai, and it is also the only national aerospace industrial base with civil aerospace industry as its main development goal. The industrial base is mainly based on commercial satellites, aerospace technology applications and other civil aerospace industries, including semiconductors, LED and solar photovoltaic industries, software service outsourcing, creative industries, etc., with the goal of building a first-class aerospace industry new city in China. Judging from the choice and evolution of the management mode of the development zone, it has gone through three stages:

First, the initial stage (2006-2007): the dual management stage led by enterprises. In June 2006 165438+ 10 65438+June, Xi 'an Aerospace Base Development Company was formally established. On October 30th, 2006, the management committee of Xi 'an Space Base was formally established. The development company is responsible for the development and construction of the base. As an agency of the municipal government, the CMC is responsible for the administrative affairs of the development zone, mainly implementing laws, regulations and preferential policies, not directly participating in the operation, and transferring the land approved for development to the development company. The functions of the development company include: infrastructure construction, land management, industrial standard factory building development and construction, commercial housing development and construction, hotel and other commercial functions development and construction, and related supporting service industry development and construction.