China's manufacturing industry is facing a historical task of transformation and upgrading. In the past two years, the country has launched three batches of intelligent manufacturing pilot demonstration projects around the “Made in China 2025†strategy, and released “Intelligent Manufacturing Development Plan (2016-2020)†and “Made in China 2025†(“1+Xâ€). The planning system has accelerated the five major projects of “manufacturing innovation center constructionâ€, intelligent manufacturing, industrial strong base, green manufacturing, and high-end equipment innovation, laying a solid foundation for the overall transformation and upgrading of the manufacturing industry. However, in order to implement the above-mentioned planning system and strategic tasks, and to receive long-term results, the industrial policy system is crucial. The latter first needs to work hard on the top-level design, which not only helps to resolve the prominent contradictions faced by China's manufacturing industry in the short term, but also better serves the long-term goal of realizing a manufacturing power.
Several major relationships must be handled. To successfully implement the manufacturing power strategy, promote the realization of the "Made in China 2025" strategic goal, and accelerate the transformation and upgrading of the manufacturing industry as a whole, the industrial policy system must take care of and deal with the following important relationships:
The first is to balance the relationship between vertical and selective industrial policies and horizontal functional industrial policies. For policy entities, it is necessary to develop vertical selective industry policies for specific products or services, specific industries or sectors, specific technology routes, specific regions, specific industry chains, specific institutions and specific enterprises, and more for innovation incentives. Develop a horizontal functional industrial policy, talent cultivation, intellectual property, information infrastructure, fair competition, improved investment environment, information and data security, collaborative networks and alliances.
The second is to take into account the relationship between the policy of cultivating emerging industries and supporting the optimization and upgrading policies of traditional industries. We cannot simply limit the transformation of the manufacturing industry or the "Made in China 2025" strategy to the cultivation of a number of emerging industries and new forces. We must also attach great importance to the optimization and upgrading of traditional industries. From the experience at home and abroad, the optimization and upgrading of traditional industries is a metabolic process, which itself catalyzes and incubates a large number of new technologies, new formats and new business models. For example, the “large-scale personalized customization†of Qingdao Red-collar garments based on the concept of Industry 4.0 has brought a new vitality to the traditional garment industry.
The third is to take into account the relationship between industrial policies that focus on productive manufacturing and industrial policies that balance the development of all aspects of the industrial chain. Today, with the deep integration of manufacturing and service industries, industrial policies must not only target processing and manufacturing, or both the manufacturing process of process-based manufacturing and assembly-type manufacturing, and the extension of policy to the policy. Promote the development of service-oriented manufacturing in all aspects of the entire industrial chain, including R&D design, resource management, financial services, logistics and distribution, and demand response.
The fourth is to deal with the relationship between economic policy leverage and non-economic policy leverage. On the one hand, the government should use traditional economic policy tools such as finance, taxation, science and technology, finance, land, trade, and public procurement. On the other hand, it must pay more attention to the exertion of laws and regulations, technical standards, administrative guidance, information services, innovation culture, and education. The role of non-economic policy levers such as training and performance appraisal. In particular, it is necessary to avoid alienating the Chinese manufacturing 2025 policy system into a “sub-cake†game of investment, sub-subsidy, and sub-projects.
The fifth is to take into account the relationship between central industrial policies and local industrial policies. "Made in China 2025" is a combination of point and line, but also a combination of top-down and bottom-up. In terms of the relationship between the central government and the local government, it is necessary to formulate and implement various industrial policies promulgated by the relevant ministries and commissions of the central government to ensure the smooth flow of the central government's industrial policies and policies, and at the same time, to a certain extent, leave sufficient space for local industrial policies. In order to encourage local governments to implement local industrial policies with distinctive characteristics according to local conditions.
The sixth is to take into account the relationship between the formulation and implementation of industrial policies and the dynamic optimization of industrial policies. Due to the increasing uncertainty of the new round of technological revolution and industrial revolution, the industrial policy under the framework of China Manufacturing 2025 will be an ongoing policy compared to the industrial policies of the automotive, steel, electronics and equipment manufacturing industries that have been implemented for many years. The trial and error and the gradual adjustment and perfection process, therefore, the policy body can not only focus on the front-end policy formulation and implementation, but also pay attention to the policy evaluation and adjustment mechanism of the back-end policy.
The seventh is to take into account the relationship between the Chinese manufacturing 2025 policy system and other industrial policies. The 2025 policy system made in China is not a renewed re-initiation, but it is not to make the original policy long-term, solidified and rigid. It is based on maintaining the rationality of existing special industrial policies (such as promoting strategic emerging industries, service-oriented manufacturing, independent innovation demonstration parks, encouraging “double innovationâ€, industrial “four basics†projects, and the development of small and medium-sized enterprises). According to the new situation and new tasks of the development of the manufacturing industry, further focus on policy resources, optimize and improve policy content, unify policy platforms, improve the accuracy of policy, and form an overall upgrade of the policy platform.
2. General Thoughts and Basic Principles At this stage, it is necessary to form a scientific and effective industrial policy system that can effectively promote the “Made in China 2025†strategy and the transformation and upgrading of manufacturing industries. First, we need to clarify the policy ideas and promote the industrial policy system. The transformation.
The first is the basis and destination of the policy system. It is necessary to embody the five development concepts, give play to the decisive role of the market in optimizing the allocation of resources, and use the unique role of the government in planning and guidance, information platform, data infrastructure, market supervision, basic research and development, technical standards, and administrative guidance to promote manufacturing. The transformation and upgrading of the industry will achieve the 2025 strategy and planning goals of China Manufacturing, and lay a policy foundation for the long-term goal of building China into a world-class manufacturing power by 2050.
The second is the driving force of the policy system. Mainly from two aspects, one is to grasp and adapt to the development trend of global manufacturing industry, to seize the country's future competition commanding heights, on the other hand, it can effectively resolve the main contradictions of the quality and efficiency of China's manufacturing industry, such as social funds. Deviation from realism, rising costs, resource and environmental constraints, low-end overcapacity, external dependence on technology, low-end solidification of the value chain, etc., to promote the transformation of economic development momentum.
The third is the policy system structure. Including whether the policy body is the central government or the local government, is the industrial informationization authority or other comprehensive functional departments; the economic attributes of the policy instruments themselves are economic policies or non-economic policy levers, which are specific to specific enterprises, specific products and specific technologies. Vertical and selective industrial policies, or neutral, horizontal and functional industrial policies of neutral, product and technology, are discrete “point policies†that focus on production and processing, or all links of the industry chain that are oriented throughout the life cycle. Integrated, platform-oriented “face policyâ€; whether the policy carrier is an industry leader or a small and medium-sized enterprise, whether it is an emerging industry or a traditional industry; the policy perspective is a macro policy for the entire manufacturing industry, or a medium-sized policy for a specific industry, or It is a micro policy for enterprises and innovative entities; the focus of policy is on technological innovation or a combination of business model innovation, management innovation, cluster innovation, talent mechanism innovation, integration of government, industry, research and research, and innovation; Policy development and implementation mechanism, or double Policy performance evaluation feedback and dynamic adjustment mechanism.
Taking into account the above basic elements, we can summarize the general idea of ​​the "Made in China 2025" policy system as follows:
Firmly establish and implement the new development concept of innovation, coordination, green, openness and sharing, conforming to the trend of global manufacturing digitalization, interconnection, intelligence, synergy, platform, service and green, targeting the Chinese manufacturing industry The structural side of the supply side, especially the low quality and efficiency, rising costs, capital outflows, resource and environmental constraints, structural overcapacity, lack of core technology, low-end solidification of the value chain, etc., focus on promoting the core task of manufacturing transformation and upgrading, Give full play to the market advantages, resource advantages, industrial advantages, late-comer advantages and policy advantages in promoting the deep integration of industrialization and modern information technology in China, guided by the China Manufacturing 2025 Strategy and Planning System, guided by market demand, and industrial innovation alliance. Or the combination of industry, academia and research as the main carrier, combing and unifying various policy platforms, eliminating policy barriers between regions, industries and enterprises, and comprehensively applying economic policy levers such as finance, taxation, finance, and regulations, standards, science and technology, Non-economic policy levers such as education, talents, assessment, etc. China's manufacturing 2025 policy system has achieved a series of major changes, and strives to form a China-made 2025 policy system with perfect system, coordinated functions, strong measures, dynamic adjustment and remarkable results in three years (by 2020).
The first is to shift from a vertically selective industrial policy targeting specific enterprises, products and technologies to a horizontally functional industrial policy that focuses on supporting SMEs, products and technologies.
Second, the system is based on a discrete “point policy†for the production of physical products, and it is transformed into a “face policy†that focuses on the integrated platform of the whole life cycle and all links in the industrial chain.
The third is to transform from a multi-innovation policy system that integrates industry-university research and development, business model innovation, management innovation, cluster innovation, and talent mechanism innovation with a technology innovation policy focusing on enterprise R&D activities.
Fourth, the policy of “doing large and incremental†focusing on nurturing and supporting the development of new industries will be transformed into a “doing better and stronger stock†policy that takes into account the transformation and upgrading of traditional industries.
The fifth is a one-way open-loop policy system with policy development and implementation as the main content, and a two-way closed-loop policy system that is unified with the formulation, implementation, evaluation and feedback adjustment.
1. Market leadership, government guidance. Correcting the relationship between the government and the market will always be the main theme of China's industrial policy. China's manufacturing 2025 policy system should give full play to the decisive role of market allocation of resources. The government will invigorate the market and let the main body through the institutional mechanism innovation, and foster innovation endogenous motivation through environmental construction, system design and platform construction. This is in fact a common feature of the German Industry 4.0 strategy and the US manufacturing recovery plan.
2. Combine with dots and facets. The process of perfecting China's manufacturing 2025 policy system itself should be a point-and-point, point-and-face policy agglomeration process, that is, a discretionary “point policy†system with specific enterprises, specific products and specific technologies as the main carriers (two announced) Batch pilot demonstration enterprises), to the "face policy" system with integrated platform and integrated platform of innovation platform or industrial complex as the main carrier. When the “point policy†turns to the “face policyâ€, it also shows that the policy system is relatively mature and stable.
3. Make large increments and do superior stocks. The difference between the Chinese manufacturing 2025 policy and the strategic emerging industrial policy is that it aims to achieve the “two-wheel drive†effect, that is, on the one hand, it is necessary to formulate and implement “big increment†for new technologies, new industries, new formats and new models. On the other hand, the policy should also take into account the upgrading and transformation of traditional industries and formulate and implement the “optimized stock†policy. Both are indispensable.
4. Coordination and complementarity. Strengthen the synergy between central and local policies and supporting policies of different functional departments, coordinate various policies, eliminate policy barriers, achieve complementary policies, ensure that policies have been implemented, are operational, can be implemented, and effectively implement policy implementation. The "last mile" issue.
5. Make up the short board and leave enough space. On the one hand, the government should complement the policy shortcomings in the areas of SME development, information infrastructure, general technical standards, public R&D platforms, and new technology industrialization; on the other hand, the government must be new industries, new products, new formats and new Standards leave room for development, especially the development and application of new technologies and standards cannot be blocked by the mainstream technology routes and product standards of existing large enterprises.
6. Encourage trial and error and create ecology. The process of policy improvement itself is a trial and error process, and it is necessary to allow all localities to conduct trial and error according to local conditions on the premise of ensuring that they do not contradict the central policies. In particular, it is necessary to create a relaxed policy ecology, allowing those small and medium-sized enterprises with limited comprehensive strength to use policy resources to carry out "black swan" technological innovation activities that seem to have unclear technical routes but huge future growth space.
The overall framework of the three-industry policy system The following diagram outlines the basic structure of the industrial policy system for the transformation and upgrading of China's manufacturing industry.
From this policy system structure, it is not difficult to see that the promotion of manufacturing transformation and upgrading can be carried out from two paths. One is around the "Made in China 2025" strategy and the resulting "1+X" planning system. The other is Supply side structural reform and development of service-oriented manufacturing. Regardless of the path, it is necessary to clarify the driving force of industrial policy (to achieve the transformation and upgrading objectives of the manufacturing industry and solve the main contradiction of manufacturing), the goal (the strategic goal of manufacturing strong countries) and the basis ("1+X" planning system), policy tools (Including, economic policy levers include fiscal, taxation, financial and other policy tools, non-economic policies include regulations, technical standards, administrative guidance, performance assessment, cultural education, vocational training and other policy tools), policy main carriers (industry alliance or Innovation platform), policy two major paths (large increments and superior stocks) and coordination of different levels of industrial policies (macro policy, meso-policy policy and micro-policy).
Among them, the macro policy is mainly aimed at the entire manufacturing industry, and it is necessary to accelerate the promotion of five major projects such as manufacturing strong foundation engineering and innovation center system construction; accelerate the establishment of common technology research and development platforms, industrial databases, industrial standard systems and industrial cloud services for the whole industry. Create a good industrial ecology; strengthen quality, safety and competitive supervision; promote pilot demonstration projects in key areas.
The Mesopolitan policy focuses on specific industries or sectors, including accelerating the development of regional innovation clusters, forming a number of influential regional or industry innovation alliances or industry alliances around the world; establishing fair access, open shared big data within the alliance Platform, cloud services, standardization, integration of production, education and research, industrial operating systems and application software; promote the construction of regional regulatory platforms.
Micro policies are primarily aimed at companies, innovation platforms or industry alliances. Including the formation of policy synergies, encourage and support the innovation of new products, new technologies, new formats, new services; promote rapid demand response and manufacturing execution systems (MES) based on network physical systems; encourage lean management and intelligence of traditional manufacturing enterprises Transform the network, accelerate the application of industrial robots, encourage invisible champions and unicorn companies, and stimulate entrepreneurship.
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