State-owned enterprises, in international practice, only refer to enterprises invested or controlled by a country. In China, state-owned enterprises also include enterprises invested and controlled by local governments. The will and interests of the government determine the behavior of state-owned enterprises. As a form of production and operation organization, state-owned enterprises have the characteristics of both profit-making legal persons and public welfare legal persons. Its profitability is reflected in the pursuit of maintaining and increasing the value of state-owned assets. Its public welfare is reflected in the fact that the establishment of state-owned enterprises is usually to achieve the goal of national economic regulation and play a role in coordinating the development of all aspects of the national economy.