People’s governments of all provinces, autonomous regions and municipalities directly under the Central Government, ministries and commissions and institutions directly under the State Council:
"The overall plan for the comprehensive reform of factor market allocation" has been approved by the State Council and is hereby issued to you, please earnestly organize its implementation.
the General Office of the State Council
December 21, 2021
(This piece is publicly released)
Overall scheme of comprehensive reform pilot of factor marketization allocation
In order to thoroughly implement the "Opinions of the Central Committee of the Communist Party of China and the State Council on Building a More Perfect System and Mechanism of Factor Marketization Allocation", this plan is now formulated to actively and steadily carry out the pilot work of comprehensive reform of factor marketization allocation.
I. General requirements
(1) Guiding ideology. Guided by Socialism with Chinese characteristics Thought of the Supreme Leader in the New Era, we will fully implement the spirit of the 19th National Congress of the Communist Party of China and its previous plenary sessions, carry forward the great spirit of party building, adhere to the general tone of striving for progress while maintaining stability, implement the new development concept completely, accurately and comprehensively, accelerate the construction of a new development pattern, give full play to the decisive role of the market in resource allocation, give full play to the role of the government, and strive to break down the institutional and institutional obstacles that hinder the independent and orderly flow of factors. Comprehensively improve the efficiency of coordinated allocation of factors, take the comprehensive reform pilot as the traction, better coordinate development and safety, actively explore new paths for improving the factor market system and building a high-standard market system, and provide a strong impetus for promoting high-quality economic and social development.
(2) Basic principles.
— — Top-level design and grassroots exploration. In accordance with the unified arrangements of the CPC Central Committee and the State Council, and on the premise of maintaining the unified national market, we will support qualified areas to make bold reforms and explorations in light of the actual situation, respect grassroots initiative, pay attention to summing up experience, standardize and upgrade in a timely manner, and provide a path model that can be replicated and promoted for the whole country.
— — System integration, coordination and high efficiency. Highlight the systematicness, integrity and synergy of the reform, promote the mutual cooperation and promotion of the reform measures of market-oriented allocation of factors in various fields, and improve the efficiency of the combined allocation of different factor resources.
— — Problem-oriented and adapted to local conditions. Firmly grasp the correct direction of reform, focus on the key areas, key links and the strongest problems reflected by market players in the construction of factor markets, and encourage localities to carry out differentiated pilot exploration in light of their own characteristics.
— — Strive for progress steadily and keep the bottom line. Proceed from reality, adhere to the premise of safety and controllability, respect objective laws, scientifically grasp the time sequence, rhythm and steps of work, organically combine liberalization with management, effectively prevent risks, and steadily and orderly promote the pilot.
(3) Pilot layout. Focusing on promoting the implementation of major national strategies, according to different reform tasks, priority should be given to urban agglomerations, metropolitan areas or central cities with urgent reform needs, good work foundation and great development potential, and pilot projects for comprehensive reform of factor marketization allocation should be carried out, and the number and scope of pilot projects should be strictly controlled. The Party Central Committee, the State Council authorized the implementation and relevant organizations to implement the reform and exploration tasks involving the market-oriented allocation of factors, in principle, priority should be given to the pilot areas. The pilot period is 2021— In 2025.
(4) Work objectives. In 2021, the pilot work of comprehensive reform of factor market allocation will be launched. In the first half of 2022, the layout of the pilot areas and the preparation and approval of the implementation plan will be completed. By 2023, the pilot work will achieve phased results, strive to achieve important breakthroughs in key links of market-oriented allocation of land, labor, capital, technology and other factors, and make positive progress in the exploration of basic system construction of market-oriented allocation of data elements. By 2025, the pilot tasks will be basically completed, and the market-oriented allocation reform of factors will achieve landmark results, making an important demonstration for improving the national factor market system.
Second, further improve the efficiency of land element allocation
(five) support the exploration of land management system reform. Reasonable division of land management powers, under the premise of strictly protecting cultivated land and saving intensive land, explore giving the pilot areas greater autonomy in land allocation. Eligible areas are allowed to explore the inter-provincial adjustment and use mechanism of savings indicators linked to the increase or decrease of urban and rural construction land. Explore the establishment of a conversion mechanism for the evaluation of the quality of supplementary cultivated land. Under the premise of strictly implementing the balance of cultivated land occupation and compensation and ensuring that one is supplemented, strictly control the scale of national overall planning of supplementary cultivated land, strictly check the quality of supplementary cultivated land, and achieve dominance and replenishment. Support the comprehensive improvement of land in the whole region, optimize the spatial layout of production, life and ecology, and strengthen the trinity protection and construction of cultivated land quantity, quality and ecology.
(six) to encourage the optimization of industrial land supply. Encourage the use of long-term lease, lease first and then let, flexible annual supply and other ways to supply industrial land. Optimize the transfer period of industrial land and improve the flexible transfer period system. Support the implementation of "standard land" transfer of industrial land to improve allocation efficiency. Support the rational conversion of different industrial land types, and improve policies such as land use change, integration and replacement. Explore increasing the supply of land for mixed industries. Support the establishment of an evaluation mechanism for the output benefit of industrial enterprises, and strengthen the refined management and economical and intensive use of land.
(seven) to promote the market-oriented way to revitalize the stock of land. Encourage pilot areas to explore ways to refine and improve the identification standards of urban inefficient land through detailed evaluation of the state of economical and intensive use of construction land, and encourage measures such as negotiation and recovery according to law, agreement replacement, and cost rewards and punishments to promote the withdrawal of urban inefficient land. We will promote the active use of existing land in state-owned enterprises and institutions, and encourage market players to promote the redevelopment of inefficient land in cities and towns through construction land consolidation. Standardize and improve the secondary land market, improve the system of transfer, lease and mortgage of construction land use rights, and support the transfer of construction land use rights through land advance registration. Explore innovative measures for comprehensive utilization of above-ground and underground space.
(eight) to establish and improve the unified urban and rural construction land market. On the premise of firmly keeping the three bottom lines of the nature of public ownership of land, the red line of cultivated land and the interests of farmers, we will support the pilot areas to explore the realization forms of the separation of ownership, qualification and use rights of homesteads in combination with the new round of rural homestead system reform pilots. On the premise of voluntary compensation according to law, it is allowed to change the use of the stock of collective construction land into the market according to the plan. In the audit standard of enterprise listing compliance, collectively operated construction land and state-owned construction land are treated equally. Support the establishment and improvement of rural property rights transfer market system.
(9) Promoting the rational and orderly use of the sea. Explore the establishment of a comprehensive marine ecological environment management system that integrates coastal areas, sea areas and river basins. Coordinate the management of land and sea resources, support the improvement of the paid use system of sea areas and uninhabited islands, and strengthen the dynamic monitoring of coastline. On the premise of strictly implementing the requirements of land use control and marine ecological environment protection, and strictly controlling reclamation activities, we will explore the promotion of primary market development and secondary market circulation in sea areas, and explore the three-dimensional layered right to use sea areas.
Third, promote the rational, smooth and orderly flow of labor factors
(10) Further deepen the reform of the household registration system. Support qualified pilot areas to carry out cumulative mutual recognition of household registration access years in the same city and mutual recognition of residence permits in urban agglomerations or metropolitan areas, and try to register household registration system with permanent residence to realize the provision of basic public services in permanent residence. Support the establishment of a population management service system marked by ID cards, expand the information capacity of ID cards, and enrich application scenarios. The construction of population development monitoring and analysis system will provide support for major policy formulation, public resource allocation and urban operation management. Establish and improve the financial transfer payment, housing supply, teachers and doctors and other security mechanisms that are suitable for the size of the resident population in the region.
(eleven) to speed up the smooth flow of labor and talent social channels. Guide employers to adhere to the demand orientation, take practical measures to attract talents, and promote the rational and orderly flow of management talents of party and government organs, state-owned enterprises and institutions, and social organizations under the premise of not attracting talents with talent titles and academic titles, and not grabbing high-level talents in the central and western regions and northeast regions during the contract period. Improve the staffing management system of public institutions and make overall use of staffing resources. Support institutions to introduce urgently needed high-level specialized talents through special posts. Support the exploration of policies to protect the rights and interests of flexible employees. Explore the establishment of an effective linkage mechanism between vocational qualification certificates, vocational skill level certificates and academic certificates. Accelerate the development of human resources service industry, and take the scale and quality of service employment as the primary criterion to measure the development effectiveness of the industry.
(twelve) to stimulate the vitality of talent innovation and entrepreneurship. Support the scientific research personnel of public institutions to leave their posts to innovate and start businesses in accordance with relevant state regulations. Promote the decentralization of professional title evaluation power, and give qualified enterprises, institutions and social organizations the right to evaluate senior professional titles. Strengthen the cultivation of innovative and skilled talents, and expand the team of high-level engineers and skilled talents. Strengthen the construction of technology transfer professionals, explore the establishment and improvement of evaluation and incentive methods for talents who transform scientific and technological achievements and intellectual property management operators, and improve the evaluation criteria for technology transfer and transformation titles.
Fourth, promote capital factors to serve the development of the real economy
(13) Increase the supply of effective financial services. Relying on the national credit information sharing platform, we will increase the sharing and integration of public credit information. Give full play to the role of credit reporting platform and credit reporting institutions, and establish a sharing and integration mechanism between public credit information and financial information. Promote the "credit-easy loan" model, make good use of the supply chain bill platform, the unified registration and publicity system for movable property financing, and the accounts receivable financing service platform, and encourage financial institutions to develop credit products that match the needs of small and medium-sized enterprises. Explore the establishment of a rapid write-off system for bad debts of small and medium-sized enterprises. Explore the deepening cooperation between banking institutions and external equity investment institutions, and develop diversified technology and finance products. Support the pilot use of digital RMB in retail transactions, living payment, government services and other scenarios. Support the improvement of the governance structure of small and medium-sized banks and rural credit cooperatives and enhance financial inclusiveness.
(fourteen) the development of multi-level equity market. Innovate the stock-bond combination products in the New Third Board market and enrich the investment and financing tools for SMEs. Select a regional equity market with standardized operation safety and strong risk management ability, and carry out pilot projects of system and business innovation. Explore the mechanism to strengthen the cooperation between the regional equity market and the national securities market.
(fifteen) improve the local financial supervision and risk management system. Support qualified pilot areas to innovate financial supervision methods and tools, and implement standardized access approval and post-event supervision for various local financial organizations. According to the principle of territoriality, the supervisory responsibility and risk disposal responsibility of the provincial people’s government should be consolidated.
Five, vigorously promote the transformation of technical factors into real productive forces.
(sixteen) improve the property rights system of post scientific and technological achievements. Support the pilot project of giving scientific researchers the ownership or long-term use right of scientific and technological achievements, and explore extending the pilot experience to more universities, research institutes and scientific and technological enterprises. Support relevant universities and research institutes to explore innovative management methods for the transformation of scientific and technological achievements. Support the authorization of post scientific and technological achievements to small and medium-sized enterprises through licensing. Improve the trading and supervision system of technical factors and promote the entry of scientific and technological achievements. Improve the fault-tolerant and error-correcting mechanism for the transfer and transformation of post scientific and technological achievements.
(seventeen) improve the allocation of scientific and technological innovation resources. Explore the coordinated allocation of innovative resources for major strategic projects, key industrial chains and innovation chain, and build an innovative service system with integrated allocation of projects, platforms, talents and funds. Strengthen the dominant position of enterprise innovation, reform the mechanism of collection, project establishment, management and evaluation of scientific and technological projects, support industry leaders to take the lead in setting up innovation consortia, and explore the implementation of the chief expert responsibility system. Support industry leaders to provide early application scenarios and applicable environments for key core technologies through customized product research and development.
(eighteen) to promote the integration of technology and capital elements. Support financial institutions to set up specialized branches in technology and finance, and increase financial support for the transformation of scientific research achievements and innovative and entrepreneurial talents. Improve the supervision system and development policy of venture capital. Support high-quality technology-based enterprises to go public or raise funds. Improve the financing mechanism of intellectual property rights and expand the financing scale of intellectual property pledge. Encourage insurance companies to actively carry out science and technology insurance business, and develop intellectual property insurance, product research and development liability insurance and other products in compliance with the law.
Six, explore the establishment of data elements circulation rules
(nineteen) improve the open sharing mechanism of public data. Establish and improve an efficient public data sharing and coordination mechanism, support the creation of a basic support platform for public data, and promote the collection, integration, orderly circulation and sharing of public data. Explore and improve the management system of public data sharing, openness, operational services and security. Give priority to the opening of high-value data sets such as enterprise registration and supervision, health and wellness, transportation and meteorology to the society. Explore the operation of government data authorization.
(twenty) to establish and improve the rules of data circulation and trading. Explore the trading paradigm of "the original data does not leave the domain, and the data is available and invisible". Under the premise of protecting personal privacy and ensuring data security, we will promote the application of data circulation in some fields step by step and orderly. Explore the establishment of a data use and dosage control system to achieve "controllable and measurable" data use. Standardize and cultivate the main players in the data trading market, develop market operation systems such as data asset evaluation, registration and settlement, transaction matching and dispute arbitration, and steadily explore the development of data assetization services.
(twenty-one) to expand the standardized data development and utilization scenarios. Give play to the role of leading enterprises and industry organizations, and promote the standardization of data collection in the fields of artificial intelligence, blockchain, car networking, and Internet of Things. Deepen the social experiment of artificial intelligence and carry out pilot projects for innovative application of blockchain. In key areas such as finance, health, electric power and logistics, we will explore product and service innovation with data as the core, support the creation of unified technical standards and an open innovation ecology, and promote the circulation of commercial data, cross-regional data interconnection, and the application of government-enterprise data integration.
(22) Strengthen data security protection. Strengthen the requirements of network security level protection, promote the improvement of data classification security protection system, and use technical means to build a data security risk prevention and control system. Explore and improve the system of authorized use of personal information. Explore the establishment of a data security use commitment system, explore the development of big data analysis and transaction prohibition lists, and strengthen post-event supervision. Explore ways to control the cross-border flow of data and improve the safety management system for important data leaving the country.
Seven, strengthen the construction of resources and environment market system.
(twenty-three) to support the improvement of resource market trading mechanism. Support the pilot areas to improve the market-oriented trading mechanism of electricity, improve the quality of signing contracts for medium and long-term electricity transactions, carry out pilot spot trading of electricity, and improve the auxiliary service market of electricity. In accordance with the principle of equity diversification, accelerate the shareholding system reform of power trading institutions, promote the independent and standardized operation of power trading institutions, and realize the standardization of power trading organization and dispatching. Deepen the market-oriented reform of natural gas and gradually build a market mechanism for gas storage auxiliary services. Improve the competitive transfer system of mining rights, establish and improve the strict exit mechanism of exploration blocks, and explore reserves trading.
(twenty-four) support the construction of green factor trading mechanism. On the basis of clarifying the red line of ecological protection, the bottom line of environmental quality and the online utilization of resources, we will support the pilot areas to further improve the trading mechanisms such as carbon emission rights, emission rights, energy use rights and water use rights, and explore ways to promote the better connection between green factor trading and energy and environmental targets. Explore the establishment of a paid acquisition mechanism for carbon emission quotas and energy use rights indicators, and enrich trading varieties and trading methods. Explore the development of resource and environment equity finance. Explore the establishment of a green accounting system, an eco-product value realization mechanism, and green responsibility accounts of governments, enterprises and individuals.
Eight, improve the factor market governance.
(twenty-five) improve the factor market trading platform. Continue to promote the integration and sharing of public resource trading platforms, expand the functions of public resource trading platforms, and gradually cover public resources such as natural resources and asset equity that are suitable for market-oriented allocation. Standardize the development of big data trading platforms. Support enterprises to participate in the construction of factor trading platform and standardize the operation of factor trading platform. Support the factor trading platform to cooperate with financial institutions and intermediaries to form a comprehensive service system covering property rights definition, price evaluation, circulation trading, guarantee, insurance and other businesses.
(twenty-six) to strengthen the supervision of the factor trading market. Innovate the rules and services of factor trading and explore effective ways to strengthen the management and supervision of factor prices. Improve the information disclosure system of factor transactions. Deepen the "streamline administration, delegate power, strengthen regulation and improve services" reform, strengthen the construction of the credit system of the factor market, and create a market-oriented and legalized international business environment. Strengthen anti-monopoly and anti-unfair competition law enforcement, standardize trading behaviors, incorporate illegal behaviors of trading subjects into credit record management, and pursue accountability and punishment for serious dishonesty. Carry out big data analysis of factor market transactions, and establish and improve the risk analysis, early warning and prevention and classified disposal mechanism of factor transactions. We will promote the reform of the bankruptcy system and establish and improve the bankruptcy system for natural persons.
Nine, to further play the synergistic allocation effect of factors.
(twenty-seven) to improve the global advanced factors gathering ability. Support the exploration and formulation of foreign high-end talent identification standards, and provide convenience for overseas talents to practice entry and exit and stop residence. Support qualified domestic and foreign investors to set up securities, futures, funds, insurance and other financial institutions in the pilot areas according to laws and regulations. Explore new modes of international scientific and technological innovation cooperation, and support qualified pilot areas to attract teams of scientists with top innovation ability around the world around global issues. Support industry leaders to take the lead in setting up international industry and standards organizations and actively participate in the formulation of international rules.
(twenty-eight) improve the distribution mechanism according to factors. Increase the proportion of labor remuneration in the initial distribution and strengthen the skill value incentive orientation of wage income distribution. Build a profit distribution mechanism that fully reflects the value of innovative elements such as knowledge, technology and management. Innovate the way of obtaining and using homestead income, and explore effective ways for farmers to share land value-added income for a long time. Reasonably allocate the value-added benefits of collectively-operated construction land entering the market, taking into account the rights and interests of the state, rural collective economic organizations and rural residents. Explore increasing residents’ property income, encourage and guide listed companies to pay dividends in cash, and improve the investor rights protection system.
X. Strengthening organization and implementation
(twenty-nine) to strengthen the overall leadership of the party. Adhere to and strengthen the party’s leadership over the pilot reform of the market-oriented allocation of factors, strengthen the "four consciousnesses", strengthen the "four self-confidences" and achieve the "two maintenances", give full play to the party’s leadership core role of taking the overall situation and coordinating all parties, and put the party’s leadership throughout the pilot work.
(thirty) the implementation of local responsibility. All pilot areas should put the comprehensive reform pilot of factor market allocation in an important position, enhance the sense of mission and responsibility, strengthen organizational leadership, improve the implementation mechanism, scientifically grasp the timing, rhythm and steps under the premise of overall controllable risks, and actively and steadily promote the implementation of the reform pilot tasks. During the pilot process, it is necessary to strengthen dynamic tracking analysis, carry out pilot effect evaluation, and submit important policies and major reform measures for approval according to procedures.
(thirty-one) to establish an organization and coordination mechanism. Establish an inter-ministerial coordination mechanism led by the National Development and Reform Commission with relevant departments as member units to promote the comprehensive reform of market-oriented allocation of factors, be responsible for coordinating the pilot work, determine the pilot areas, coordinate and solve major problems, and strengthen supervision and inspection. The National Development and Reform Commission shall, jointly with relevant parties, guide the pilot areas to prepare the implementation plan and list of authorized items, and organize the implementation after approval according to procedures; On the basis of local self-assessment, third-party assessments are carried out regularly. For the pilot areas that have achieved remarkable results, they should be commended and encouraged, and the promotion experience should be summarized in time; For the pilot areas with insufficient motivation, ineffective implementation and ineffective results, it is necessary to make rectification within a time limit, and those that are not in place should be adjusted according to procedures to withdraw from the pilot. Important situation timely report to the CPC Central Committee and the State Council.
(thirty-two) to strengthen the protection of the rule of law. Establish and improve the laws, regulations and policy adjustment mechanisms that are compatible with the comprehensive reform pilot of factor market allocation, coordinate the related laws and regulations, and do a good job of connecting with the relevant laws and regulations. The reform measures and authorization matters to be implemented in the pilot areas, which involve the adjustment of existing laws or administrative regulations, shall be implemented after being authorized by the National People’s Congress and its Standing Committee or the State Council according to law; Other related to the adjustment of departmental rules and regulatory documents, the relevant parties shall, in accordance with the requirements of this plan and the approved list of authorized matters, give the reform authorization to the relevant pilot areas at one time according to the law.
