I. General requirements
(1) guiding ideology.
Fully implement the "four comprehensive" strategic layout, take economic transformation and upgrading as the main line, take counties (cities, districts) as the main body, adhere to the combination of problem orientation and goal orientation, the combination of "top-down" and "bottom-up", the combination of pilot first and overall promotion, sum up and promote the successful experience of pilot reform of county economic system, and comprehensively establish factor grading pricing, enterprise classification guidance, and rural property rights "flexibility".
(2) Basic principles.
Highlight the problem orientation. Focusing on the implementation of major strategic arrangements of the country and the whole province, we will study, analyze and solve outstanding problems faced under the new normal of economic development, break down institutional and institutional obstacles through deepening reforms, and enhance the momentum of economic development.
Pay attention to system promotion. Strengthen the awareness of the overall situation of reform, pay attention to the systematicness, integrity and synergy of economic system reform, strengthen organizational leadership and overall coordination, promote the implementation of key reform tasks and major reform measures, and form a strong joint force of up-and-down linkage and departmental coordination to promote reform.
Adhere to the law and evidence. Unify the principles of "try first" and "based on the law" to ensure that major reforms are carried out on the track of the rule of law. We will promptly clean up and revise local laws and government regulations, accelerate the formation of a legal system that is compatible with comprehensively deepening reforms, and provide an important guarantee for comprehensively deepening reforms.
Play a comprehensive effect. Further emancipate the mind, leave enough room for reform and innovation, and on the basis of encouraging and supporting local, grass-roots and masses to take the initiative and take the lead in exploring experiments, integrate replicable and popularized pilot experiences to achieve the overall promotion effect through pilot breakthroughs.
Second, the main task
(A) the comprehensive establishment of "per mu yield benefit" as the guidance of the differential allocation mechanism of resource elements.
1. Establish and improve the comprehensive evaluation system of "per mu yield benefit". Combined with the characteristics of regional industrial structure and enterprise scale, taking into account the indicators such as average per mu yield, average per mu tax, unit energy consumption and unit emission, we will establish and improve the comprehensive evaluation mechanism of enterprises with open sorting and dynamic management, and build an index evaluation system that objectively and reasonably reflects the actual situation and scientifically measures the benefits of enterprises. (Lead unit: Provincial Economic and Information Committee)
2. Improve the price mechanism of differentiated resource elements. According to the comprehensive evaluation of enterprises, the system of differential electricity price, progressive price increase of non-resident water, compound pricing charge of sewage treatment, total energy consumption verification and index transaction, paid use and transaction of emission rights will be established to promote the adjustment of urban land use tax policy, force backward production capacity to be eliminated and withdrawn, and maximize the efficiency of resource utilization. (Lead unit: Provincial Economic and Information Committee, Provincial Price Bureau)
3. Establish a comprehensive platform for regional factor trading. Integrate emission rights, energy consumption indicators, land, property rights, talents, technology and other elements to promote the construction of a comprehensive factor trading platform. Integrate and improve the function of factor trading platform, improve operating rules and trading processes, and promote the free trading and market-oriented allocation of resource elements such as land, emission rights, energy consumption and carbon emission rights. (Lead unit: Provincial Development and Reform Commission, Provincial Finance Office)
4. Establish a financial reward and punishment system for ecological environment. In accordance with the requirements of "whoever benefits pays" and "whoever pollutes pays", we will comprehensively establish a mechanism in which financial rewards and punishments are linked to the total discharge of major pollutants, and financial ecological compensation is linked to the exit water quality and forest coverage rate of key ecological functional districts and counties in the province. (Lead unit: Provincial Department of Finance and Provincial Environmental Protection Department)
(2) Comprehensively promote the innovative mechanism of industrial structure adjustment combining positive incentives and reverse reversals.
1. Establish a "trinity" project investment access system. Standardize the access standards for industrial investment projects, establish a "trinity" access system with space access, industry access and project access as the main contents, and promote the agglomeration of industries to the main platform, projects to key industries and elements to high-quality projects. Establish a dynamic adjustment mechanism for the access standards of industrial investment projects, and give priority to new projects that meet the access standards of industrial investment projects in terms of land supply, financing, emission rights indicators, energy consumption indicators, examination and approval services, and financial support. (Lead unit: Provincial Development and Reform Commission, Provincial Economic and Information Commission)
2. Establish an enterprise classification guidance system with "four for three" as the core. Relying on the comprehensive information platform of enterprises, we will establish "enterprise physical examination files" and comprehensive performance evaluation methods, implement the linkage mechanism of enterprise classification guidance, differentiated allocation of resource elements and industrial policy classification guidance, accelerate the "four for three", and encourage and force industrial restructuring and backward production capacity to withdraw. (Lead unit: Provincial Economic and Information Committee)
3. Establish a service mechanism for independent innovation of enterprises with "five-oriented linkage". Establish and improve the enterprise mechanism of innovation subject, comprehensively implement the system of step-by-step cultivation of enterprises and step-by-step construction of key enterprise research institutes, deepen the open cooperation mechanism of technological innovation, and promote enterprise-led collaborative innovation with universities and research institutes. Establish a humanistic mechanism to promote technological innovation in enterprises and increase the proportion of creative labor distribution of scientific research personnel in enterprises. Improve the mechanism of scientific and technological innovation development platform, and promote the development of innovative platforms such as scientific and technological business incubators, creative spaces, scientific and technological innovation service platforms and high-tech zones. Improve the commercialization mechanism of technological achievements, deepen the reform of enterprise operation of technology intermediaries, and promote the construction of technology market. Establish and improve the socialization mechanism of innovative services, vigorously promote the purchase of public services such as "innovative service vouchers", and promote the opening of public scientific research resources to the society. (Lead unit: Provincial Science and Technology Department)
(3) comprehensively promote the innovation of the system and mechanism of urban-rural integration development.
1. Comprehensively promote the reform of "three powers belong to the people (households), and power follows the people (households)". Accelerate the issuance of certificates for rural "three rights", issue warrants to people (households) as soon as possible, and comprehensively protect farmers' property rights and interests with "accurate confirmation". We will speed up the improvement of the supporting system of "the right follows the person (household)", promote the construction of the rural property right transfer trading market, establish and improve the comprehensive transaction service platform for rural property rights, support and encourage the rural contracted land management right mortgage loan and the rural "three rights" guarantee insurance loan pilot, explore the pilot of farmers' housing property right mortgage loan, and fully activate rural sleeping assets with "full living rights". (Lead units: Provincial Agricultural Office, Provincial Department of Agriculture and Provincial Financial Office)
2. Steadily promote the pilot reform of rural land system. In accordance with the unified arrangements of the central government, we will promote the pilot of rural collective construction land entering the market and the reform of rural homestead system in an orderly manner, establish and improve the market trading rules and service supervision system for rural collective construction land, and gradually form a market access system for rural collective construction land with the same rights and the same price, smooth circulation and benefit sharing, and a rural homestead system with fair acquisition, economical and intensive use and voluntary and paid withdrawal according to law. (Lead unit: Provincial Department of Land and Resources and Provincial Department of Finance)
3. Accelerate the reform of agricultural management system. Promote the orderly transfer of land management rights and moderate scale operation, cultivate and expand new agricultural business entities such as large professional households, family farms, farmers' cooperatives and leading enterprises in agricultural industrialization, and guide all kinds of entities to participate in mutual cooperation. Explore the establishment of effective forms and mechanisms such as entrustment and purchase of agricultural public services to promote the development and growth of agricultural service industry. Deepen the reform of supply and marketing cooperatives, agricultural production and management system and rural cooperative financial system, and accelerate the construction of a "trinity" of farmers' cooperative economic organization system and operation mechanism. (Lead unit: Provincial Agricultural Office, Provincial Department of Agriculture)
4. Improve the system and mechanism of equalization of basic public services in urban and rural areas. Establish an integrated operation mechanism for urban and rural infrastructure such as water supply, public transportation, sewage treatment and garbage disposal, and promote the sharing of urban and rural infrastructure and public facilities. Improve the balanced allocation mechanism of public resources such as education and medical care, promote the overall allocation and rational flow of urban and rural compulsory education resources, establish a long-term mechanism for sinking high-quality medical resources, improve the graded diagnosis and treatment model, and promote the formation of a reasonable and orderly medical treatment pattern. Establish a unified household registration management system in urban and rural areas, and gradually abolish different policies attached to the original household registration. Coordinate the construction of urban and rural social security systems, improve the policy of transferring and continuing social insurance relations, and promote the integration of urban and rural social assistance systems. (Lead unit: Provincial Development and Reform Commission)
(four) to establish and improve the system and mechanism to encourage and attract private capital into the field of social undertakings.
1. Establish and improve the fair access competition mechanism for investment and operation of social undertakings. Simplify the examination and approval procedures, optimize the examination and approval procedures for planning, land use, enrollment, large-scale equipment, medical insurance, technology licensing, etc., and improve the system and mechanism of public construction and private and mixed operation. Adhere to the principle of standardization and equalization of basic public services, strictly control the scale and standards of urban public hospitals, public non-compulsory education schools, public pension institutions and public sports and cultural venues, and expand the space for private investment. (Lead unit: Provincial Development and Reform Commission)
2. Establish and improve the two-way flow mechanism of talents in state-owned and private social undertakings. Deepen the reform of personnel system in public institutions and implement the reform of endowment insurance system in government institutions and institutions. Improve the third-party level examination, qualification certification and personnel agency mechanism for professional and technical personnel, reform and improve the industry practice registration system, and further remove the restrictions on professional and technical personnel working in private institutions. We will deepen the management list system of special financial funds, reform the government's purchase of public services, and ensure fair competition among private institutions. (Lead unit: Provincial Department of Human Resources and Social Security, Provincial Department of Finance)
3. Innovate and improve the return mechanism of private capital investment in the social field. Strengthen cooperation between government and social capital (PPP) and guide funds to support social undertakings. Explore the establishment of a moderate return and reward system for private capital to invest in social undertakings, and try out that investors can extract investment income according to a certain proportion of the annual loan benchmark interest rate every year from the date of obtaining income; We will improve the mechanism of equity change, institutional dissolution and liquidation, and protect the legitimate rights and interests of investors according to law. Investors donate free of charge to private hospitals, schools, nursing homes and sports and cultural venues, and the local government gives a one-time reward. (Lead unit: Provincial Development and Reform Commission, Provincial Department of Finance)
(5) Establish an efficient examination and approval system for enterprise investment projects.
1. Continue to cancel and decentralize a batch of approval items. According to the State Council's document on decentralization and cancellation of examination and approval items, a number of examination and approval items were cleared and cancelled, decentralization was implemented, and a dynamic catalogue of administrative examination and approval items at the provincial, city and county levels was established. Promote Jiaxing's experience in the pilot reform of the integration of examination and approval levels, delegate a number of provincial-level management rights to cities and counties (cities, districts), and delegate a number of municipal-level management rights to counties (cities, districts), basically realizing the same rights of cities and counties and effectively improving the efficiency of examination and approval. (Lead unit: Provincial Legislative Affairs Office, Provincial Development and Reform Commission)
2. Improve the parallel and efficient examination and approval mechanism for enterprise investment projects. Popularize the pilot experience in Ke Qiao, and formulate an implementation plan for deepening the reform of efficient examination and approval of enterprise investment projects. We will implement integrated pre-approval, joint surveying and mapping, joint review before construction, collaborative supervision of construction and joint acceptance of completion, implement parallel approval and whole process optimization, and accelerate the formation of an efficient enterprise investment project approval mechanism. Explore and carry out a 50-day pilot project of efficient approval from land acquisition approval to construction permit, and further optimize the approval process. (Lead unit: Provincial Development and Reform Commission)
3. Actively explore enterprise investment projects. The government will no longer approve the reform pilot. Improve the negative list system, access standard system, enterprise commitment system according to law, filing system and other systems in the pilot areas where the government no longer approves enterprise investment projects, and encourage other areas to explore and formulate relevant measures for the government to no longer approve enterprise investment projects. (Lead unit: Provincial Development and Reform Commission)
4. Establish and improve the online approval mechanism for investment projects. Accelerate the construction of online approval and supervision platform for investment projects, realize "one network" of vertical and horizontal coherent joint approval, and promote the implementation of online parallel approval system for investment projects. Accelerate the interconnection between Zhejiang government service network and the online approval platform of national investment projects, promote the disclosure and sharing of information resources such as investment approval, and realize the effective supervision of "system+technology". (Lead unit: General Office of the Provincial Government, Provincial Development and Reform Commission)
5. Establish and improve the post-event supervision mechanism. Implement the Opinions of the General Office of the People's Government of Zhejiang Province on Deepening the Reform of the Examination and Approval System and Strengthening Post-event Supervision (Zhejiang Zhengban Fa [2015] No.75), and formulate post-event supervision measures based on market access standards, with construction permit, construction supervision and completion acceptance as the main contents. For the key areas and links of supervision, it is necessary to clarify the subject of supervision responsibility, strengthen on-site supervision, and promote coordinated supervision and comprehensive law enforcement. Promote the construction of a unified complaint reporting platform and establish and improve a joint law enforcement coordination and command mechanism. Establish a random inspection mechanism for randomly selecting inspection objects and randomly selecting law enforcement inspectors, and standardize the department's discretion. Strengthen the construction of a comprehensive information platform for supervision, build a supervision credit system, encourage industry self-discipline and social participation, and make every effort to build a supervision system after the event. (Lead unit: Provincial Development and Reform Commission, Provincial Editorial Board Office)
6. Accelerate the market-oriented reform of intermediary services. Comprehensively clean up the paid intermediary services such as technical review, evaluation, certification and consultation in the pre-stage of the current administrative examination and approval, standardize the service time limit and charging items, and issue a catalogue of intermediary services. We will promote the decoupling and restructuring of intermediary institutions from government agencies and institutions, and study and formulate supporting policies such as the disposal of state-owned assets and the placement of personnel. Accelerate the construction of intermediary markets in cities and counties, and realize the full coverage of online intermediary markets or relatively concentrated intermediary supermarkets. (Lead unit: Provincial Development and Reform Commission, Provincial Department of Human Resources and Social Security, and Provincial Editorial Board Office)
Third, supporting policies.
(a) the implementation subject and the responsible subject of the differential electricity price policy are adjusted from the people's governments of districts and cities to the people's governments of cities and counties (cities, districts), and the differential electricity prices charged by local power companies can be directly paid into local finance. Counties (cities, districts) in the implementation of national, provincial and local districts and cities on the basis of differential electricity price policies, combined with the actual development of implementation details and organize their implementation. (Lead unit: Provincial Economic and Information Committee, Provincial Price Bureau and Provincial Department of Finance)
(two) under the premise that the sewage treatment fee standard is not lower than the national minimum standard, the price of domestic sewage treatment fee for non-residents shall be determined by the municipal and county (city, district) governments themselves. (Lead unit: Provincial Price Bureau and Provincial Department of Finance)
(three) enterprises shut down outside the industrial function zone can be included in the reclamation and development. If idle land can be expropriated according to law, it shall be expropriated at 20% of the land price transferred or allocated; If it can be recovered free of charge according to law, it will be recovered free of charge. (Lead unit: Provincial Department of Land and Resources and Provincial Department of Finance)
(IV) On the basis of delegating the relevant examination and approval authority of land management to the pilot counties (cities, districts), according to the evaluation of the preliminary pilot work and the actual work of land and resources management in counties (cities, districts), and after the approval of the provincial government, steadily and orderly promote the decentralization work. (Lead unit: Provincial Department of Land and Resources)
Fourth, safeguard measures.
(1) Strengthen organizational leadership. The provincial economic system reform leading group and its office should strengthen the organization, coordination and guidance services, and examine and approve the overall plan for comprehensive economic system reform in counties (cities, districts). Relevant departments at the provincial level should strengthen guidance and services for comprehensive reform, increase support in finance, taxation, price, finance and land, and issue relevant supporting policies and measures before the end of 20 15. All districts and cities should establish and improve corresponding promotion mechanisms and strengthen support and guidance for comprehensive reform. Counties (cities, districts) should earnestly assume the main responsibility of reform, carefully formulate comprehensive reform plans and annual work points, and do a good job in promoting the implementation of reform projects. 20 15 1 1 submit the comprehensive reform plan to the office of the provincial leading group for economic system reform before the end of 20 15, and implement the comprehensive reform before the end of 2015.
(2) Strengthen supervision and evaluation. The establishment of comprehensive reform work ledger system, the county (city, district) to promote the reform of the situation regularly submitted to the provincial economic system reform work leading group office. Establish a comprehensive reform evaluation mechanism, improve the third-party evaluation mechanism, strengthen the evaluation of the progress of promoting and pilot reforms, submit annual and phased evaluation reports of comprehensive reforms to the office of the provincial leading group for economic system reform and relevant departments at the provincial level, and regard the implementation of comprehensive reforms as an important basis for the target responsibility assessment of city and county leading bodies and provincial departments.
(3) Strengthen publicity and summary. Strengthen the guidance of public opinion on the comprehensive reform of the economic system, vigorously publicize and promote major reform programs and major reform measures, summarize and refine the good experiences and practices that have emerged in the process of reform, and constantly enrich and improve them. The office of the provincial leading group for economic system reform should coordinate and solve the difficulties and problems in the process of comprehensive reform, and report major problems in a timely manner to ensure the smooth implementation of the reform.