First, resource-based enterprises have a heavy burden.
Resource-based enterprises refer to enterprises that exploit mineral resources and forest resources and process these resources, mainly including coal enterprises, petroleum enterprises, metallurgical enterprises and forest industry enterprises. These enterprises are basically large and medium-sized state-owned enterprises, and most of them have been operating for more than 40 years. At present, a considerable number of enterprises bear a heavy burden, mainly due to the large number of retirees, large social expenses, heavy tax burden and heavy debt burden.
(1) There are many retirees.
Some resource-based enterprises in resource-based cities were established before liberation, and some were established during the "First Five-Year Plan" and "Second Five-Year Plan" periods, ranging from 40 years to nearly a hundred years, and a large number of retirees have been formed so far.
(2) Enterprises spend a lot of money on society.
Like other large and medium-sized state-owned enterprises in China, resource-based enterprises have their own schools, hospitals and even police stations, fire brigades and other social undertakings. Moreover, since most resource-based enterprises were founded without the support of cities, the content of running society by enterprises is more and more comprehensive than that of other large and medium-sized state-owned enterprises.
A heavy tax burden
The tax revenue of resource enterprises in China generally accounts for about 10% of sales revenue. For example, Panzhihua Iron and Steel Group paid 65.438+0.48 billion yuan in tax in 2002, accounting for 654.38+0.6% of the sales revenue of that year; Tonghua Mining Bureau, the current comprehensive tax rate is 9%; At present, taxes and fees of non-ferrous mines in Liaoning Province account for 10. 1% of sales revenue, while taxes and fees of chemical mines account for 1 1% of sales revenue. According to relevant data, at present, the tax revenue of mining enterprises in China is 1 times higher than that of other industrial enterprises and 6 percentage points higher than that of the same industry abroad.
In our view, the deep-seated reason for the heavy tax burden of resource-based enterprises is that China has always listed resource-based industries as the second industry, and has treated the manufacturing industry equally when designing tax policies, so it has also imposed value-added tax. Although the low tax rate of 13% is adopted, the actual value-added tax is heavier because of the less input deduction of resource-based enterprises. At the same time, resource-based enterprises should pay more resource taxes and resource compensation fees than other types of enterprises. For example, the current resource tax collection standard of Datong Coal Industry Group is 2.4 yuan per ton, and the compensation fee for mineral resources is about 1% of sales revenue. The total resource tax and mineral resources compensation fee is about 3.5 yuan per ton of coal.
A heavy debt burden
Due to system, history, management, resources, market and other reasons, many resource-based enterprises have low production and operation efficiency, resulting in a large debt burden. For example, the general contracting period from Jixi Mining Group 1985 to 1994 to 10 is the transition period from planned economy to market economy. After 1992, the company encountered unprecedented difficulties and became one of the most difficult enterprises in the whole industry. During the general contracting 10 year, the loss index approved by the superior was/kloc-0 1.0247 billion yuan, while the actual loss of the company was 3,343.72 million yuan. In order to make up for the deficiency of the loss index, the company made up for the excess loss of RMB 6,543,800+0.35758 million with various income-increasing policies given by the state, and made up for the excess loss of RMB 267,340 with its own funds, plus the flood subsidy of RMB 24,040,000 given by the state, totaling RMB 6,543,800+0.65896 million. Even so, the company still has an excess loss of 660.66 million yuan. 1995, 1996 Even if the loss index issued by the superior is completed, it is completed on the basis of a large number of wage arrears, reducing production and operation investment and increasing loan repayment. Since then, 1997 has further aggravated the difficulties, especially in 1998, the raw coal output of Dajing in the whole company was only 52 1 10,000 tons, with a loss as high as10/3.79 million yuan, and the accumulated excess loss for many years was about 654,380+0.8 billion yuan. By the end of 1998, the asset-liability ratio reached 97.7%, the working capital loan 1 1 billion yuan, the infrastructure loan195 million yuan, the deficit between people125 million yuan, and the unpaid wages were 3,767/kloc.
Another example is Yangjiazhangzi Mine in Huludao, which was originally affiliated to China Nonferrous Metals Industry Bureau and is a large molybdenum mineral processing enterprise located in Yangjiazhangzi Town. Founded in 1899, it was one of the key projects of 156 during the First Five-Year Plan period. It was once the largest molybdenum production base in China and was world-famous. Due to various reasons, such as shrinking mineral resources and increasing historical burden, the mine began to lose money in the middle and late 1970s and accumulated a loss of 260 million yuan by the end of 1999, so it can only rely on state financial subsidies to maintain its operation. The total assets are 436 million yuan (excluding land), the total liabilities are 6120 thousand yuan, and the asset-liability ratio is 654.38+040%. 1In the autumn of 998, when Premier Zhu listened to the report of large and medium-sized state-owned enterprises in Dalian, he identified the mine as one of the seven closed non-ferrous metal mining enterprises in Liaoning Province. In June1999165438+10, the mine was declared closed, and in February 2000, it was officially declared bankrupt according to legal procedures.
Second, the economic growth of some cities is slow.
Resource enterprises such as petroleum, coal, metallurgy and forest industry. Most of them are old state-owned enterprises established under the planned economy system. They not only have the above-mentioned problem of excessive burden, but also have the same disadvantages as ordinary established large state-owned enterprises, such as ineffective mechanism, outdated equipment and excessive personnel. In addition, there are some unique difficulties, mainly including: First, some areas are facing different degrees of resource depletion. For example, the coal mining in beipiao city, Liaoning Province has a history of 120 years. At present, there are basically no recoverable reserves, and the Mining Bureau is bankrupt as a whole. Although some have certain reserves, most of them are buried deeply, with poor quality, complicated geological conditions and great difficulty in mining, making it difficult for enterprises to obtain benefits under the existing conditions. For example, although Hegang, Heilongjiang Province has nearly 2 billion tons of recoverable coal reserves, most of them are deep coal, which has high mining costs and losses year after year and is unsustainable. Second, the accelerated substitution of new resources, new materials and new energy for traditional energy and raw materials has led to the shrinking market of resource products. Third, for a long time, the pricing of resource-based products in China is too low, which makes resource-based enterprises accumulate less. Fourthly, due to the low threshold for entering the production of resource-based products, in recent ten years, some towns and private enterprises have joined the ranks of resource exploitation, which makes the market for resource-based products such as coal exceed demand, and large resource-based enterprises are facing the competitive pressure of small enterprises. Fifth, due to the requirements of ecological protection, forest harvesting is strictly restricted. Taken together, a considerable number of resource-based enterprises are facing unprecedented difficulties, which are as follows: the scale of production is shrinking and the number of laid-off workers is increasing; Long-term losses of enterprises and low efficiency of production and operation; Capital turnover is difficult, and production and operation are unsustainable.
Resource-based cities are formed and developed by relying on resource-based enterprises, which play an important role in the economy of resource-based cities. Their industrial output value, taxes, employees and other indicators are basically above 40%, and some are as high as 80% ~ 90%. Therefore, the production and operation of resource-based enterprises are in trouble, which will inevitably directly affect the economic growth vitality of the city. From the investment point of view, the investment of large resource enterprises generally accounts for 30% ~ 50% of the total investment in the city, and some even reach more than 70%. When resource-based enterprises are in trouble, the investment ability of enterprises will definitely not go up, and the investment ability of the whole city will not go up; In terms of consumption, employees of large resource-based enterprises and their families account for 1/5 to 1/3 of the city's urban residents. When resource-based enterprises are in trouble, the consumption level of employees and their families will definitely decline, and so will the consumption level of cities. In most resource-based cities, the income level of resource-based enterprises is a "barometer" of urban consumption level. From the perspective of fiscal revenue, the tax paid by resource-based enterprises generally accounts for more than 1/3 of the city's fiscal revenue. For example, the tax paid by Hegang Mining Group in Heilongjiang accounts for 60% of the city's fiscal revenue, resource-based enterprises are in trouble, and the city's finances are bound to drop sharply. At the same time, the decline of resource-based enterprises will also form a "domino effect." In resource-based cities, a considerable number of enterprises directly or indirectly support large resource-based enterprises. Resource-based enterprises are in trouble, and all related enterprises are spared, thus forming a comprehensive impact on urban development and stability.
It is also worth noting that the economic recession of resource-based cities leads to the slow growth of regional economy. For example, during the Ninth Five-Year Plan period, the economic growth rate of Northeast China, which accounts for 1/4 of the total number of resource-based cities in China, was lower than the national average by 1 several percentage points, while the economic growth rate of Shanxi Province, which accounts for about one-eighth of the country, was nearly 2 percentage points lower than the national average.
Third, there are many laid-off workers.
Laid-off workers in resource-based cities are mainly composed of three parts. One part is that resource-based enterprises reduce their staff because of resource exhaustion or asset establishment; The other part is the unemployment caused by the shrinking of resource-based enterprises, affiliated enterprises and other uncompetitive enterprises; Another part is the unemployment of the new labor force caused by the lack of new growth points in the urban economy.
Fourth, the ecological environment is seriously damaged.
In addition to the "three wastes" pollution in general cities, resource-based cities also have some unique ecological and environmental problems (1) land collapse.
This is a * * * problem faced by all coal cities. According to the investigation of 1998, every ten thousand tons of coal is mined, 3 mu of subsidence land is formed. In China, the annual land subsidence caused by coal mining is1.5000 hectares. By the end of 200 1, the mined-out area of Shuangyashan coal reached 1 16.6 square kilometers, and the subsidence area was 62 square kilometers, involving 2 100 households and 68,000 people. Datong produced 2 billion tons of coal in 50 years, forming nearly 45,000 hectares of mined-out areas. The existing land subsidence area in xiaoyi city has also reached 6.5438 0.5 million hectares, accounting for 654.38 0.6% of the city's total area. The land subsidence areas of Huaibei City and Huainan City in Anhui Province reached 65438 0.47 and 6500 hectares respectively.
(2) Stacking of solid waste
It mainly includes ore storage in metallurgical cities, coal gangue storage in coal cities and fly ash storage in power plants. According to relevant data, the area of waste rock and tailings accumulated in China over the years has reached 67,000 hectares. According to the investigation of 1998, every ten thousand tons of iron production capacity needs to cover an area of 3.5 hectares; It takes up 0.5 ~ 1 hectare of land for mining 10,000 tons of ore. For example, in Jixi City, Heilongjiang Province, the coal gangue produced by coal mining reaches more than 654.38 billion tons, increasing at a rate of about 6 million tons every year, which not only occupies a lot of land, but also seriously pollutes the environment; The existing coal gangue piles in Tongchuan City, Shaanxi Province reach 510.6 million tons; Panzhihua City, Sichuan Province produces 120,000 tons of industrial waste every year, accounting for12 of Sichuan Province. At present, the accumulated storage capacity has reached1700,000 tons, covering an area of1520,000 square meters.
(C) the destruction of water resources
In China's resource-based cities, the destruction of water resources is more serious, and the water bodies in many cities have been polluted many times, which has seriously affected the water quality as a drinking water source. It is urgent to solve the problem of water pollution. 40% of the eight mining bureaus in Shanxi are seriously short of water, and 60% of the mining areas have poor water quality. Datong is one of the most water-deficient cities in China 100. The per capita urban area is 220 cubic meters, which is equivalent to one tenth of the national average of 2,400 cubic meters and 39% of the average of 570 cubic meters in Shanxi Province. The annual over-exploitation of groundwater in urban areas is 800 million cubic meters, which leads to the decline of groundwater level in urban areas at the rate of 1 ~1.5 meters per year, and has formed a groundwater funnel area with a total area of 100 square kilometers. According to incomplete statistics, there are 13 townships,165,438+00,000 villages,165,438+00,000 people and more than 20,000 large livestock in the city. Due to the drop of water level, wells dried up, and they had to pull water from dozens of miles away. Xiaoyi city 1 14000 people in Shanxi Province have difficulty drinking water due to coal mining.
Five, the city location is not good, infrastructure debt.
As we all know, in terms of resource development, China has long adopted the model of "one mine and one city", that is, building a city where mineral or forest resources are to be developed. Therefore, most resource-based cities are formed and developed on the basis of resource development, and the endowment and distribution of resources determine the macro-positioning of resource-based cities. According to relevant data, about 80% of China's resource-based cities are located in the resource-rich central and western regions, and a considerable number of cities are built in hinterland or Gobi desert. Daqing, Hegang, Yichun, Yumen, Karamay, Gejiu, Wuhai and many other cities are located in deep inland or remote desert areas, while China's economic center is located in the eastern region, especially in the eastern coastal areas. Therefore, this macro location condition is very unfavorable to the development of resource-based cities. On the one hand, they are far away from major large and medium-sized cities and economically developed areas, or from major markets, which increases the transportation cost of export products; On the other hand, it is difficult to accept the radiation from the economic center and the factors of production such as capital, talents and technology flowing out of developed areas.
From the microscopic conditions of building a city, another meaning of the "one mine, one city" model is that most resource-based cities are built near mines, and cities will be built wherever mines are opened. In this case, it is difficult for some mining areas to meet the requirements of a normal city in terms of topography, transportation and water supply. Many cities are built on low hills, such as Hegang in Heilongjiang, Shuangyashan, Qitaihe, Baiyin in Gansu and Panzhihua in Sichuan. Some cities have formed a very scattered urban layout because of the boundaries of mining areas. Typical examples are Yichun City, Daqing City, Heilongjiang Province and Huainan City, Anhui Province. Whether it is built on the mountain or scattered urban layout, it greatly increases the cost of urban construction, making the investment in urban infrastructure construction per unit length or area much higher than that of ordinary cities. At the same time, due to the lack of attention to urban planning at that time, the construction of some urban infrastructure was extremely unreasonable, and it is not easy to transform it now.
In the long-term planned economy period, China basically followed the guiding ideology of "production first, then life" in all fields. In the process of resource development, we pay attention to the mine construction of direct production, but ignore the urban infrastructure construction where people live. Therefore, when resource-based enterprises and local governments implement the "integration of government and enterprise", resource-based enterprises in their youth have the ability to invest in urban infrastructure construction, but because of the guiding ideology of "production first, life later", they have not spent much money on urban infrastructure construction. Since the reform and opening up, when people have realized the importance of urban construction, the system of "integration of government and enterprise" has been replaced by "compartmentalization", and resource-based enterprises have no obligation to spend money to build cities, while local governments that should be responsible for urban construction are "powerless" because of limited financial resources. Therefore, the infrastructure construction of resource-based cities will inevitably lag behind the basic requirements of urban development.
6. The problem of fragmentation is still very prominent.
For a long time, as the most important economic entities in resource-based cities, large-scale resource-based enterprises, such as petroleum administration, mining groups, steel or copper companies, have been managed by "regulations". In recent years, except for oil companies, they are basically decentralized and managed by relevant departments in the province. Regardless of the central government or the province, the problem of fragmentation is still very prominent for the cities where resource-based enterprises are located. On the one hand, it shows the conflict between the short-term production and operation behavior of enterprises and the goal of urban sustainable development. In recent years, although the names of most resource-based enterprises have been reformed, such as changing from the original "Mining Bureau" to "Mining Group", the actual situation is far from meeting the requirements of modern enterprise systems such as "clear property rights, clear rights and responsibilities, separation of government from enterprises, and scientific management". As an appendage of the government, the situation of enterprises has not changed much, but it used to be an appendage of a central department, and now it has become an appendage of a provincial government department. Business leaders still obey the assessment and command of the competent department. For example, at present, there are two main indicators for the evaluation of the leadership of a coal mine enterprise by the relevant departments of a province: first, the profit index; The second is safety indicators. This management method forces enterprise managers to be eager for quick success and instant benefit, which will inevitably make enterprises lose the ability of sustainable development. As far as cities are concerned, although the current cadre system also has factors that allow "secretaries" and "mayors" to take short-term actions to achieve political achievements quickly, as far as urban development itself is concerned, it needs long-term prosperity and sustainable development.
On the other hand, public facilities such as urban water supply and gas supply and educational and medical facilities such as schools and hospitals belong to resource-based enterprises and urban governments respectively, resulting in repeated construction and waste of resources. Because resource-based cities are mostly evolved from the system of "integration of government and enterprise", resource-based enterprises have urban public facilities such as water supply and gas supply, and schools and hospitals at all levels. Under the current situation, the water supply and gas supply units owned by resource enterprises are handed over to local governments, and the government has enthusiasm, but the enthusiasm of enterprises is not high. Because the benefits of water supply and gas supply units in the city are good now, if they are handed over to local governments, resource-based enterprises are worried that their interests will be damaged. Even if it is merged with the city's water supply and gas supply units in the form of shareholding system, resource-based enterprises are not active. Transferring the schools of resource-based enterprises to local governments, enterprises are active and the government is not, because the government wants to increase education expenditure. There are two ways to transfer. One is that resource-based enterprises no longer pay for education after transformation; The other is that resource-based enterprises continue to pay the same amount of education funds several years after the transfer. If it is the former, it is obvious that the local government will increase the cost of the school owned by the original enterprise. In the latter case, although resource-based enterprises continue to pay the same amount of education funds, at present, the treatment of faculty and staff in schools affiliated to most resource-based enterprises, especially coal enterprises, is lower than that of schools affiliated to local governments. After the government takes over, the teaching and administrative staff of the schools affiliated to the original resource-based enterprises are bound to improve their treatment. However, the original education funds of the resource-based enterprises are not enough and the government needs additional funds, which is unbearable for local governments with limited financial resources. When the hospital was handed over to the local government, resource-based enterprises and local governments were more active, so the progress was relatively smooth. This is because most hospitals affiliated to resource enterprises are basically in a state of balance of payments, and it doesn't matter who manages them.
The "compartmentalization" of urban public facilities and schools makes it impossible for the local government to make overall planning and rational layout, resulting in a waste of resources. For example, in a metallurgical city in northwest China, water supply has always been mainly undertaken by resource-based enterprises. However, due to its age and aging equipment, it is planned to borrow from abroad to import equipment for transformation. At the same time, the local government built a water plant in the 1990s, which has been idle because there is no user equipment. Another example is a coal mining city in the northeast. On the one hand, in recent years, the schools of mining groups have turned to local government schools because of low investment and poor quality, and the school buildings are idle; On the other hand, due to the rapid increase in the number of students, schools run by the local government have to find ways to raise funds to build new schools. One day, after the schools affiliated to the mining group are merged with the schools of the local government, it is likely that there will be a surplus of school buildings.