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1、NoticebytheGeneralOfficeoftheStateCouncilRegardingIssuingtheMasterPlanforthePilotProgramoftheComprehensiveReformoftheMarket-orientedAnOCationofFactorsDocumentNumber：No.512021oftheGeneralOfficeoftheStateCouncilAreaQfLaW:MarketManagementOptimizationofDoingBusiness1.evelofAuthority：RegulatoryDocumentso
2、ftheStateCouncilIssuingAuthority：GeneralOfficeoftheStateCouncilDateIssued：12-21-2021EffectiveDate:12-21-2021Status：EffectiveDecember 21, 20212021年12月21日NoticebytheGeneralOfficeoftheStateCouncilRegardingIssuingtheMasterPlanforthePilotProgramoftheComprehensiveReformoftheMarket-orientedAllocationofFact
3、ors(No.512021oftheGeneralOfficeoftheStateCouncil)Thepeoplesgovernmentsofallprovinces,autonomousregions,andmunicipalitiesdirectlyundertheCentralGovernment;andallministriesandcommissionsofandinstitutionsdirectlyundertheStateCouncil:TheMasterPlanforthePilotProgramoftheComprehensiveReformoftheMarket-ori
4、entedAllocationofFactors,asapprovedbytheStateCouncil,isherebyissuedforyourconscientiousorganizationofimplementation.GeneralOfficeoftheSlateCouncil国务院办公厅关于印发要素市场化配置综合改革试点总体方案的通知(国办发(2021)51号)各省、自治区、直辖市人民政府，国务院各部委、各直属机构：要素市场化配置综合改革试点总体方案已经国务院同意，现印发给你们，请认真组织实施。国务院办公厅MasterPlanforthePilotProgramoftheCom
5、prehensiveReformoftheMarket-orientedAllocationofFactorsForthepurposesofthoroughlyimplementingtheOpinionsoftheCPCCentralCommitteeandtheStateCouncilonImprovingtheSystemsandMechanismsforMarket-orientedAllocationofFactorsofProduction,thisPlanisherebyformulatedtoactivelyandsteadilyconductthepilotprogramo
6、fthecomprehensivereformofthemarket-orientedallocationoffactors.I.Generalrequirements1. Guidingideology.XiJinpingThoughtonSocialismwithChineseCharacteristicsforaNewErashallbetheguidance,thespiritofthe19thCPCNationalCongressandallthePlenarySessionsofthe19thCPCCentralCommitteeshallbefullyimplemented,th
7、eGreatFoundingSpiritoftheCPCshallbecarriedforward,thegeneralworktoneofseekingprogresswhilemaintainingstabilityshallbeadheredto,thenewdevelopmentconceptshallbefully,accurately,andfullyimplemented,theestablishmentofanewdevelopmentpatternshallbeaccelerated;thedecisiveroleofthemarketinresourceallocation
8、shallbemaximized,theroleofthegovernmentshallbebetterplayed,effortsshallbeexercisedtoremovesystemsandmechanismsthatpresentobstaclestotheindependentandorderlymovementoffactors,theefficiencyofcoordinatedallocationoffactorsshallbecomprehensivelyimproved,developmentandsafetyshallbebettercoordinated,under
9、theguidanceofthecomprehensivereformpilotprogram,new要素市场化配置综合改革试点总体方案为深入贯彻落实中共中央国务院关于构建更加完善的要素市.场化配置体制机制的意见，现就积极稳妥开展要素市场化配置综合改革试点工作制定本方案。一、总体要求（一）指导思想。以习近平新时代中国特色社会主义思想为指导，全面贯彻落实党的十九大和十九届历次全会精神，弘扬伟大建党精神，坚持稳中求进工作总基调，完整、准确、全面贯彻新发展理念，加快构建新发展格局，充分发挥市场在资源配置中的决定性作用，更好发挥政府作用，着力破除阻碍要素自主有序流动的体制机制障碍，全面提高要素协同配置
10、效率，以综合改革试点为牵引，更好统筹发展和安全，为完善要素市场制度、建设高标准市场体系积极探索新路径，为推动经济社会高质量发展提供强劲动力。（二）基本原则。pathsshallbeactivelyexploredforimprovingthefactormarketsystemandbuildingahigh-standardmarketsystem,andastrongdrivingforceshallbeprovidedforpromotinghigh-qualityeconomicandsocialdevelopment.2. Basicprinciples一顶层设计、基层探索。按照党中
11、央、国务院统一部署， 在维护全国统一大市场前提下，支持具备条件的地区结合 实际大胆改革探索，尊重基层首创精神，注重总结经验， 及时规范提升，为全国提供可复制可推广的路径模式。-Top-leveldesignandprimary-levelexploration:InaccordancewiththeunifiedarrangementsoftheCPCCentralCommitteeandtheStateCouncil,underthepremiseofmaintainingaunifiednationalmarket,regionswithgoodconditionsshallbesuppo
12、rtedinboldlyconductingreformsandexplorationsbasedonactualconditions,thepioneeringspiritofprimary-levelorganizationsshallberespected,attentionshallbepaidtosummarizingexperience,andexperienceshallberegulatedandimprovedinatimelymanner,soastoprovidepathsandmodelsthatcanbereplicatedandpromotedacrosstheco
13、untry.一系统集成、协同高效。突出改革的系统性、整体性、协 同性，推动各领域要素市场化配置改革举措相互配合、相 互促进，提高不同要素资源的组合配置效率。-Systemintegration,collaboration,andhighefficiency:Thesystemic,holistic,andsynergisticnatureofreformsshallbehighlighted,thecooperationbetweenandmutualpromotionofreformmeasuresforthemarket-orientedallocationoffactorsinallfi
14、eldsshallbepromoted,andtheefficiencyofthecombinationandallocationofdifferentfactorresourcesshallbeincreased.一问题导向、因地制宜。牢牢把握正确的改革方向，聚焦要素市场建设的重点领域、关键环节和市场主体反映最强烈的问题，鼓励地方结合自身特点开展差别化试点探索。Problemorientationandadaptingmeasurestolocalconditions:Thecorrectdirectionofreformsshallbefirmlygrasped,focusshallbep
15、utonkeyfieldsofandstepsintheconstructionoffactormarketsandissuesmoststrongly4. Work objectives. The pilot program of the comprehensive(四)工作目标。2021年，启动要素市场化配置综reportedbymarketparticipants,andregionsshallbeencouragedtoconductdifferentiatedpilotprogramsandexplorationsbasedontheirowncharacteristics.3. S
16、eekingprogresswhilemaintainingstabilityandrespectingthelimits:Actualconditionsshallbethebasis,thepremiseofsafetyandcontrollabilityshallbeadheredto,objectivelawsshallberespected,worksequences,paces,andstepsshallbescientificallygrasped,andanorganiccombinationofrelaxationandeffectiveregulationshallbeac
17、hieved,soastoeffectivelypreventrisksandadvancethepilotprograminasteadyandorderlymanner.4. 1.ayoutofthepilotprogram.Withafocusonpromotingtheimplementationofmajornationalstrategies,priorityshallbegivenbasedondifferentreformtaskstoselectingurbanagglomerations,metropolitancircles,orcentralcities,amongot
18、hers,withurgentreformneeds,agoodworkfoundation,andrelativelygreatdevelopmentpotential,toconductthepilotprogramofthecomprehensivereformofthemarket-orientedallocationoffactors,andthenumberofparticipantsinthepilotprogramandscopeofpilotprogramshallbestrictlycontrolled.Regionsconductingthepilotprogramsha
19、llbegivenprioritytoconductingthereformandexplorationtasksinvolvingthemarket-orientedallocationoffactorswhichareimplementedundertheauthorityoftheCPCCentralCommitteeandtheStateCouncilandimplementedasorganizedbyrelevantsidesinprinciple.Theperiodofthepilotprogramshallbefrom2021to2025.一稳中求进、守住底线。从实际出发，坚持
20、以安全可控为前提，尊重客观规律，科学把握工作时序、节奏和步骤，做到放活与管好有机结合，切实防范风险，稳步有序推进试点。(三)试点布局。围绕推动国家重大战略实施，根据不同改革任务优先考虑选择改革需求迫切、工作基础较好、发展潜力较大的城市群、都市圈或中心城市等，开展要素市场化配置综合改革试点，严控试点数量和试点范围。党中央、国务院授权实施以及有关方面组织实施的涉及要素市场化配置的改革探索任务，原则上优先在试点地区开展。试点期限为2021-2025年。reformofthemarket-orientedallocationoffactorsislaunchedin2021.Inthefirsthal
21、fof2022,theregionallayoutofthepilotprogramandthepreparationandsubmissionforapprovalofimplementationplanswillbecompleted.In2023,thepilotprogramwillhaveproducedmilestoneresults,anendeavorwillhavebeenmadetoachieveimportantbreakthroughsinkeystepsinthemarket-orientedallocationofland,labor,capital,technol
22、ogy,andotherfactors,andpositiveprogresswillhavebeenmadeintheexplorationoftheconstructionofthebasicsystemforthemarket-orientedallocationofdatafactors.In2025,thetasksforthepilotprogramwillhavebeenbasicallycompleted,andthereformofthemarket-orientedallocationoffactorswillhavedeliveredlandmarkresults,set
23、tinganimportantexampleforimprovingthenationalfactormarketsystem.II.Furtherimprovingtheefficiencyofallocationoflandfactors5. Supportingtheexplorationofreformofthelandadministrationsystem.Landadministrationpowersshallbereasonablydivided,andunderthepremiseofstrictlyprotectingcultivatedlandandeconomical
24、andintensiveuseofland,regionsconductingthepilotprogramshallbegivengreaterautonomyinlandallocation.Eligibleregionsshallbeallowedtoexploreamechanismforinter-provincialadjustmentanduseofsurplusindicatorslinkedtotheincreaseordecreaseofurbanandruralconstructionland.Theestablishmentofaqualityevaluationand
25、conversionmechanismforreplacementcultivatedlandshallbeexplored,thescaleofnationalcoordinationofreplacementcultivatedlandshallbestrictly合改革试点工作。2022年上半年，完成试点地区布局、实施方案编制报批工作。到2023年，试点工作取得阶段性成效，力争在土地、劳动力、资本、技术等要素市场化配置关键环节上实现重要突破，在数据要素市场化配置基础制度建设探索上取得积极进展。到2025年，基本完成试点任务，要素市场化配置改革取得标志性成果，为完善全国要素市场制度作出重要
26、示范。二、进一步提高土地要素配置效率（五）支持探索土地管理制度改革。合理划分土地管理事权，在严格保护耕地、节约集约用地的前提下，探索赋予试点地区更大土地配置自主权。允许符合条件的地区探索城乡建设用地增减挂钩节余指标跨省域调剂使用机制。探索建立补充耕地质量评价转换机制，在严格实行耕地占补平衡、确保占一补一的前提下，严格管控补充耕地国家统筹规模，严把补充耕地质量验收关，实现占优补优。支持开展全域土地综合整治，优化生产、生活、生态空间布局，加强耕地数量、质量、生态“三位一体”保护和建设。controlledonthepremiseofstrictlyimplementingabalancebetwe
27、entheoccupationofandreplacementforcultivatedlandandensuringthatthereisareplacementforeachoccupiedtractofland,andthequalityofreplacementcultivatedlandshallbestrictlysubjectedtoacceptanceinspection,soastoachievethattherearepremiumreplacementsforoccupiedtractsofpremiumland.Thecomprehensivelandconsolida
28、tionthroughoutregionsshallbesupported,thelayoutofproduction,residential,andecologicalspacesshallbeoptimized,andtheintegratedprotectionandconstructionofquantity,quality,andecologyofcultivatedlandshallbestrengthened.（六）鼓励优化产业用地供应方式。鼓励采用长期 租赁、先租后让、弹性年期供应等方式供应产业用地。优 化工业用地出让年期，完善弹性出让年期制度。支持产业 用地实行“标准地”出让
29、，提高配置效率。支持不同产业 用地类型合理转换，完善土地用途变更、整合、置换等政 策。探索增加混合产业用地供给。支持建立工业企业产出 效益评价机制，加强土地精细化管理和节约集约利用。（七）推动以市场化方式盘活存量用地。鼓励试点地区探索通过建设用地节约集约利用状况详细评价等方6. Encouragingtheoptimizationofindustriallandsupplymethods.Thesupplyofindustriallandbylong-termleases,leasebeforegranting,flexibletermsupply,andothermeansshallbeen
30、couraged.Thetermofindustriallandgrantsshallbeoptimized,andtheflexiblegranttermsystemshallbeimproved.Theimplementationofgrantingofindustriallandasstandardlandshallbesupportedtoimproveallocationefficiency.Thereasonableconversionofdifferenttypesofindustriallandshallbesupported,andpoliciesonchangesinuse
31、s,integration,andswappingofland,amongothersshallbeimproved.Anincreaseinthesupplyofmixedindustriallandshallbeexplored.Theestablishmentofamechanismfortheevaluationofoutputbenefitsofindustrialenterprisesshallbesupported,andthedelicacymanagementandeconomicalandintensiveuseoflandshallbestrengthened.7. Pr
32、omotingtherevitalizationofexistinglandinamarket-orientedmanner.Regionsconductingthepilotprogramshallbeencouragedtoexplorethedetailingandimprovementofthecriteriaforidentifyingurbanlandininefficientusebydetailedevaluationoftheeconomicalandintensiveutilizationofconstructionlandandothermeansandpromoteth
33、evacationofurbanlandininefficientusethroughmeasuressuchasrecoverythroughnegotiation,swapsbyagreement,andcostincentivesandpunishments.Therevitalizationandutilizationofexistinglandofstate-ownedenterprisesandpublicinstitutionsshallbeadvanced,andmarketparticipantsshallbeencouragedtopromotetheredevelopme
34、ntofurbanlandininefficientusebyconstructionlandconsolidationandothermeans.Secondarymarketsforlandshallberegulatedandimproved,thesystemfortransferring,leasing,andmortgagingrightstouseconstructionlandshallbeimproved,andthetransferofrightstouseconstructionlandthroughadvancenoticeregistrationoflandshall
35、besupported.Innovativemeasuresforthecomprehensiveutilizationofgroundandundergroundspacesshallbeexplored.8. Establishingandimprovingaunifiedurbanandruralconstructionlandmarket.Onthepremisethatthepublicownershipnatureoflandremainsunchanged,theredlineofcultivatedlandisnotpushedback,andtheinterestsoffar
36、mersarenotinjured,regionsconductingthepilotprogramshallbesupported,inlightofanewroundofpilotprogramofreformofthesystemforrurallandasresidentiallots,inexploringtheformofimplementationoftheseparationofrurallandasaresidentiallotownership,qualificationrights,anduserights.Onthepremiseofcompliancewithlaw,
37、voluntariness,andnon-gratuitousness,themarketingofexistingcollectiveconstructionlandafteritsuseischangedaccordingtoplans式，细化完善城镇低效用地认定标准，鼓励通过依法协商收回、协议置换、费用奖惩等措施，推动城镇低效用地腾退出清。推进国有企事业单位存量用地盘活利用，鼓励市场主体通过建设用地整理等方式促进城镇低效用地再开发。规范和完善土地二级市场，完善建设用地使用权转让、出相、抵押制度，支持通过土地预告登记实现建设用地使用权转让。探索地上地下空间综合利用的创新举措。（八）建立健全
38、城乡统一的建设用地市场。在坚决守住土地公有制性质不改变、耕地红线不突破、农民利益不受损三条底线的前提下，支持试点地区结合新一轮农村宅基地制度改革试点，探索宅基地所有权、资格权、使用权分置实现形式。在依法自愿有偿的前提下，允许将存量集体建设用地依据规划改变用途入市交易。在企业上市合规性审核标准中，对集体经营性建设用地与国有建设用地给予同权对待。支持建立健全农村产权流转市场体系。shallbepermitted.Inthecompliancereviewstandardsforenterpriselistings,collectivecommercialconstructionlandandsta
39、te-ownedconstructionlandshallbetreatedasthesamerights.Theestablishmentandimprovementofaruralpropertyrightscirculationmarketsystemshallbesupported.9. Advancingthereasonableandorderlyuseofthesea.Theestablishmentofacomprehensivemarineecologicalandenvironmentalgovernancesystemthatcoordinatesandintegrate
40、scoastalareas,seaareas,andwatershedsshallbeexplored.Themanagementoflandandsearesourcesshallbecoordinated,theimprovementofthesystemforpaiduseofseaareasanduninhabitedislandsshallbesupported,andthedynamicmonitoringofcoastlinesshallbestrengthened.Onthepremiseofstrictlyimplementingthecontrolofspatialuses
41、andtherequirementsofmarineecologicalandenvironmentalprotectionandstrictlycontrollingreclamationactivities,theadvancementofthedevelopmentofseaareasonprimarymarketsandcirculationofseaareasonsecondarymarketsshallbeexplored,andthethree-dimensionalandhierarchicalcreationofrightstouseseaareasshallbeexplor
42、ed.III.Promotingthereasonable,smooth,andorderlymovementoflaborfactors10. Furtherdeepeningthereformofthepermanentresidenceregistrationsystem.Regionsconductingthepilotprogramwithgoodconditionsshallbesupportedinpermittingmutualrecognitionofrequiredperiodforpermanentresidenceregistrationeligibilityandmu
43、tualrecognitionofresidencepermitsinurbanagglomerationsormetropolitancircles,（九）推进合理有序用海。探索建立沿海、海域、流域协同一体的海洋生态环境综合治理体系。统筹陆海资源管理，支持完善海域和无居民海岛有偿使用制度，加强海岸线动态监测。在严格落实国土空间用途管制和海洋生态环境保护要求、严管严控围填海活动的前提下，探索推进海域一级市场开发和二级市场流转，探索海域使用权立体分层设权。三、推动劳动力要素合理畅通有序流动（十）进一步深化户籍制度改革。支持具备条件的试点地区在城市群或都市圈内开展户籍准入年限同城化累计互认、居住证
44、互通互认，试行以经常居住地登记户口制度，实现基本公共服务常住地提供。支持建立以身份证为标识的人口管理服务制度，扩大身份证信息容量，丰富应implementingthesystemforpermanentresidenceregistrationattheplaceofhabitualresidenceonapilotprogrambasis,andachievingtheprovisionofbasicpublicservicesattheplacesofhabitualresidence.Theestablishmentofanidentificationdocument-basedpopu
45、lationmanagementse,icesystemshallbesupported,thecapacityofidentificationinformationshallbeexpanded,andapplicationscenariosshallbeincreased.Apopulationdevelopmentmonitoringandanalysissystemshallbeconstructedtoprovidesupportformajorpolicyformulation,publicresourceallocation,andurbanoperationandmanagem
46、ent,amongothers.Financialtransferpayments,housingsupply,teacheranddoctorstaffing,andothersecuritymechanismscommensuratewiththesizeofthelocalresidentpopulationshallbeestablishedandimproved.11. Acceleratingthechannelsforsocialmobilityoflaborforcesandtalents.Employersshallbeguidedinadheringtodemandorie
47、ntation,takingmeasuresforattractingtalentsinlinewithactualconditions,andpromotingthereasonableandorderlymovementofmanagementtalentsinCPCandgovernmentorgans,state-ownedenterprises,publicinstitutions,andsocialgroups,ontheconditionofrefrainingfromattractingtalentsaccordingtotalenttitlesandacademictitle
48、s,amongothers,andrefrainingfrompoachinghigh-leveltalentsduringthecontractperiodfromthecentral,western,andnortheasternChina.Thestaffingmanagementsystemforpublicinstitutionsshallbeimproved,andtheuseofstaffingresourcesshallbecoordinated.Publicinstitutionsshallbesupportedinintroducingurgentlyneededhigh-
49、levelspecializedtalentsbyestablishingspecialpositions.Theexplorationofpoliciesontheprotectionoftherightsand用场景。建设人口发展监测分析系统，为重大政策制定、公共资源配置、城市运行管理等提供支撑。建立健全与地区常住人口规模相适应的财政转移支付、住房供应、教师医生编制等保障机制。(-1-)加快畅通劳动力和人才社会性流动渠道。指导用人单位坚持需求导向，采取符合实际的引才措施，在不以人才称号和学术头衔等人才“帽子”引才、不抢挖中西部和东北地区合同期内高层次人才的前提下，促进党政机关、国有企事业单位、社会团体管理人才合理有序流动。完善事业单位编制管理制度，统筹使用编制资源。支持事业单位通过特设岗位引进急需高层次专业化人才。支持探索灵活就业人员权益保障政策。探索建立职业资格证书、职业技能等级证书与学历证书有效衔接机制。加快发展人力资
