Section one: the basic concept and status of urban management subject
First, the basic concept of urban management subject
The so-called urban management subject refers to "the government, enterprises, organizations, individuals or other institutions that participate in the investment, management or operation of urban objects in the specific process of urban management".
Second, the basic characteristics of the concept of urban management subject
1. Participate in this process.
No matter enterprises, groups, individuals or other institutions, as long as they participate in the process of urban management, they are the main body of urban management.
2. Diversification of subjects
The identity of commercial subject is multiple, which can be a legal person or a natural person, a government agency or an enterprise group, an investor or an operator or manager.
3. Differences in status
The core commercial entities and subordinate commercial entities in urban commercial entities have different positions in commercial functions. For example, the power position of the core business entity in land planning and land construction approval is not owned by the subordinate business entity; The leading position of the core business entity in the process of urban management is not possessed by the subordinate business entities.
Third, the relationship and position of urban management subjects in urban management.
Urban management is not only an economic behavior, but also a concrete social behavior. There is no essential difference between behavior and other behaviors in social attributes, because they are all composed of the subject, object and process of behavior. The subject of behavior manipulates and operates the specific object of behavior according to certain laws and established procedures, so as to achieve the corresponding goals. In this behavior system, the subject of behavior is dominant and active, the object of behavior is active and passive, and the behavior process is procedure and law.
Section 2 Types of Urban Business Subjects
In the previous analysis of the basic concepts of urban management, it has been pointed out that unless there are clear provisions in national laws and regulations, urban management entities are allowed to invest in the construction and management of urban infrastructure or other urban management objects. (Xu Manggeng, Wang, Countermeasures and Suggestions for Deepening Urban Management) Therefore, we must vigorously promote the development of urban management subjects from centralized to diversified, change the situation that the government does everything, and speed up urban modernization. Starting from the social status and capital attributes of urban business entities, there are mainly the following types of urban business entities at present:
I. State-owned capital operating entities
1. Functional composition of state-owned capital management entities
To run a city, it is necessary to cultivate business entities, set up economic entities as investors on behalf of the government, use market economy to finance and invest in urban construction, and set up urban construction investment and development companies as investment entities in urban capital operation, which are responsible for the operation of state-owned capital in urban construction and exercise the functions of state-owned capital investment entities. City Investment Company is a wholly state-owned company established in accordance with the Company Law. Its main function is entrusted by the government to manage, invest and finance the city's state-owned assets and serve the city's construction. (China Real Estate Network "On Managing Cities") In addition, in the process of giving full play to the role of its business subject, the government must unify the duality of its role through institutional innovation, so as to realize the organic combination of market behavior and non-market behavior. Mainly: first, through the establishment of urban construction investment companies and other enterprises to achieve business behavior; Second, through the transformation of functions, it can better perform its planning, public management and service functions; Third, in view of the current imperfect market mechanism, the focus of government actions should be on improving the marketization of urban resource allocation. (Zou, "Urban Construction Should Highlight Functional Orientation")
2. Establish a state-owned capital-based business entity.
To run a city, we must first set up a core urban management entity, because without the guidance of the core management entity, urban management is as impossible as eating the sky. Therefore, the municipal government should immediately set up a special enterprise legal person-urban asset management company, which mainly manages cities and concentrates state-owned assets with operational value. The municipal government authorizes the urban asset management company to operate in a unified way, and concentrates the proceeds from urban asset management on urban infrastructure to realize the interactive expansion of urban construction and management. (Zhou, Jiujiang city management should realize five changes). For example, the management committee of Xi 'an Hi-tech Industrial Development Zone and its hi-tech group can not only take into account the favorable factors of government behavior and enterprise behavior, but also avoid the unfavorable factors of government behavior and enterprise behavior. Operation and management institutions are generally composed of business backbones with decent style from urban management institutions, management talents with enterprise management experience from state-owned enterprises, and professional and technical talents related to operating cities from universities and scientific research institutions. The government strengthens coordination and service functions. Only such a team can manage the city well.
3. Advantages and characteristics of state-owned capital cities.
A. separating government from enterprise: if the city investment company is separated from the construction bureau, it can introduce the market mechanism and carry out thorough bidding, resulting in the effect of 1 >: 1. (China Real Estate Network "On Managing Cities")
B. break through the bottleneck of funds.
C. introducing market mechanism.
D. perform planning, coordination, management and supervision functions instead of the government.
E. property rights and benefits are owned by the state.
Participate in the operation and development of land, infrastructure and other urban resource elements.
G. the leadership of the state-owned capital-based business entity is dual, both as a manager and an executor.
4. Types of state-owned capital management entities
A wholly state-owned enterprises: such as Urban Construction Investment and Development Corporation, Zhong Fang Group, Shenzhen Special Economic Zone Development Group and Xi Hi-Tech Group.
B. State-owned holding enterprises: such as Zhongguancun Construction Group, Shenzhen Tian Jian Group and Xi 'an Xifang Group.
C. State-owned joint venture entities: such as Nanyou Group in Shenzhen.
Second, non-state-owned capital-based business entities.
1, township enterprises, real estate development companies and other collectively owned business entities.
2. Private enterprise entities, such as real estate companies in Rong Zhijian and Liu Yonghao.
Third, the main business entities of foreign-funded cities
Mainly refers to Huaxin International Group and other real estate companies from abroad.
In addition, according to the different social status and functions of urban business entities, they can also be divided into core urban business entities and subordinate urban business entities, which will be introduced in the next section.
Section III Basic Concepts and Current Situation of Business Subjects in Core Cities
First, the basic concept of core enterprise entities
The core business entity refers to an enterprise legal person or other organization entrusted by the relevant departments authorized by the city government or the competent government departments to formulate specific development strategies and policies for the city under the special historical background of China's economic transition period and the initial stage of urbanization, and to jointly manage and develop urban natural resources and human resources with other subordinate city business entities.
Second, the characteristics of core business entities
1. Duality
A set of two brands, both government agencies and enterprise organizations; Its leaders are both officials and entrepreneurs; It is a combination of referee, goalkeeper and player.
2. Advantages
In the process of urban management, it is in an active guiding position.
3. State ownership
Although on the surface, their business behavior is enterprise behavior, they often use the national land or other urban resources as collateral to obtain bank loans as the start-up funds for development and operation. The investment subject is essentially the government, so the income must be owned by the state.
Third, the types of core business entities.
There are two types of core business entities: government and authorized core city business entities.
1, the city government plays a leading role in urban construction and management, which is both the main body and the core of urban management. They play a leading role in organizing, guiding, guiding, standardizing, supervising and demonstrating in the process of urban management. Their leading role is mainly reflected in the government's full responsibility for urban planning, construction and management.
2. The core subject of authorized urban management refers to all kinds of development zone management committees authorized by the government and their subordinate construction groups or housing construction and development companies and real estate comprehensive development companies under the urban construction department. For example, Hi-Tech Group in Xi Hi-tech Development Zone and Nanyou Group in Shenzhen. The authorized core business entity is a three-dimensional urban business entity (GCM) integrating government functions, state-owned property rights and land management (Real Estate Planning from a Political Perspective, Xi Evening News, May 2, 20031).
Fourthly, the main body of core city management-the function of government in city management.
City government is the leader and organizer of city management. How to locate and play their role in urban management is related to whether urban management can be carried out scientifically and effectively.
The municipal government is the head of the city and the leader of urban management, shouldering the administrative functions of managing and building the city and promoting its development. Therefore, only by reasonably defining and clarifying the functions of the city government in urban management can we actively and efficiently perform our duties and effectively guide, standardize and promote the implementation of the urban management strategy.
We believe that the main functions of the city government in urban management should be located in the following aspects:
1. Create an environment
Urban environment is an important support of urban management, and its comprehensive quality determines the depth, breadth and effectiveness of urban management. Therefore, the primary task of the city government is to create a good development environment and improve the overall value of the city.
draw up a plan
As an important strategy of urban development, urban management is a huge systematic project. In addition to a general understanding of it, there must be a scientific and reasonable implementation plan in order to implement it in an orderly manner. Therefore, to do a good job in urban management, planning is the premise, and government departments should organize special forces to do this work.
3. Organize implementation
The most important function of the government in urban management is leadership. Organize urban management activities, use various policies and measures to guide and start urban management strategies, and strive to attract domestic and foreign investors to participate in urban construction and development.
4. Standardize supervision
Urban management is a market-oriented operation mode, which is a market-oriented allocation of urban resources adopted by the city government to improve the city's function and image. It involves the redistribution of interests and will lead to unfair phenomena because of profit-seeking. How to create a fair, open and just urban management environment and regulate and supervise the market order has become an important function of the city government.
Build a brand
The brand of a city is the comprehensive embodiment of a city's material civilization and spiritual civilization, and the concentrated embodiment of its characteristics and advantages. Successful brand building is of great significance to enhance the competitiveness and attractiveness of the city. Therefore, another important task of the government in urban management is how to package, publicize and sell, build a city brand and establish a city image.
Five, the main body of core city management-matters that the government should pay attention to in urban management.
1. Establish advanced business philosophy
In urban management, the city government must first solve the problem of concept consciousness. Only under the guidance of advanced concepts can we correctly understand and scientifically grasp the rich connotation of urban management and correctly organize and implement urban management strategies.
1) Subjective concept As the manager and development leader of the city, the city government must be in the leading position of planning, leadership, command and coordination in urban management. Although from the perspective of operation mechanism, urban management emphasizes the use of market economy means, from the perspective of urban management and organization, the leading role of the government is beyond doubt. Therefore, the city government should have subjective consciousness, actively use legal norms, economic means and policy levers to organize and carry out urban management in an efficient and orderly manner.
2) Management concept Under the condition of market economy, the government's management mode and administrative mode must be fundamentally changed to meet the requirements of market rules. Especially at the level of urban management, the government should pay attention to grafting the business philosophy and management model of successful enterprises into administrative management, so as to reduce administrative costs, reduce administrative mistakes, improve the efficiency and effectiveness of administrative work, and effectively carry out urban management.
3) Systematic View From the perspective of urban management, all resources (tangible and intangible) of a city are the contents of management, and the construction of material civilization and spiritual civilization is an important part. The city government, enterprises and institutions, social organizations and all citizens are all participants, so this is a huge systematic project. Therefore, in the process of organizing and implementing urban management, the city government must establish the overall concept and system concept, make overall consideration and make overall planning to ensure the effective implementation and systematic effect of urban management strategy.
4) Characteristic concept Urban management is a way of urban development that many cities are exploring under the condition of market economy. The concept and connotation of urban management are basically the same, but the natural, social and historical conditions of each region and city are different. Therefore, in the implementation of the strategy of managing a city, we should identify our own characteristics and advantages, choose the entry point according to the current situation of economic and social development, and operate in a way suitable for the actual situation in the region, and do not blindly copy it regardless of the local actual situation.
2. Building a business-oriented government
As the main body of urban management, the government should not only adapt to the requirements of market economy in concept, but also introduce business ideas in the aspects of institutional setup, the exercise of administrative functions and the provision of administrative products and services. We should not only talk about efficiency, but also about efficiency. In this sense, modern government should be not only managerial, but also operational. Only by taking the construction of operational government as an important part of urban management strategy can the coordination between government behavior and the implementation of urban management strategy be realized. Building a business-oriented government should include the following aspects:
1) The institutional setup should be economical and reasonable. At present, China is carrying out administrative system reform to meet the requirements of market economy. From the perspective of running a city, there are also problems that need administrative system reform. Whether the setting of government functional departments is scientific and reasonable directly determines the effect of managing cities. First of all, the government should have a comprehensive department to co-ordinate urban management to prevent problems such as too many policies, overlapping functions, poor coordination and inability to concentrate power. Secondly, it is necessary to merge government functions and concentrate similar functions in one department, which is not only conducive to centralized dispatching, but also reduces administrative expenses and administrative costs because of the reduction of administrative departments. Furthermore, it is to market and socialize some non-administrative functions of the government, return the functions that should be regulated by the market to the market, and hand over the work that should be carried out by the intermediary agencies to the intermediary agencies, so that the government can play its functions efficiently because of the specialization and specialization of its functions.
2) The administrative link should be fast and smooth, which can be understood from two aspects: on the one hand, the effective implementation of government decisions ensures the effectiveness of decisions; On the other hand, it is the problem of simplifying procedures and how to provide services quickly and efficiently. The key to solve these two problems is to reduce intermediate links and simplify administrative examination and approval. The reform of administrative examination and approval system is the core of administrative system reform. Only by reducing the administrative examination and approval items of the government can we streamline the government institutions and realize the transformation of government functions. From the perspective of urban management, since it is management, it is necessary to pursue efficiency and benefit, and an important aspect of government efficiency and benefit is the simplification of procedures, the quickness of doing things and the shortening of time. Because the service level of public servants is limited, the most fundamental thing is to simplify the examination and approval process and reduce the restrictive behavior of the government.
3) Products and services should be of high quality and high efficiency. Under the condition of market economy, the main functions of the government include two aspects: one is to provide public goods, and the other is to provide public services. Regardless of institutional factors, product quality and service level are mainly the efficiency of government agencies and the professional quality and professional ethics of government workers. The main measures to strengthen the efficiency construction of organs are as follows: First, improve the overall quality of organs' staff. Under the condition of market economy, city governments should attach great importance to the scientific development and effective utilization of human resources. Government departments should take various measures to attract outstanding talents into the government and constantly improve the talent management level of government agencies. Only in this way can urban management activities be carried out at a high level. The second is to establish and improve rules and regulations. Rely on the system to encourage and restrain administrative behavior, ensure the benign development of work, eliminate the adverse effects caused by human factors, and make administrative work on the track of standardization and institutionalization.
4) Administrative actions should be beneficial to the decision-making of the municipal government, and the making of administrative actions involves interest issues. The benefit is the final embodiment of the government's achievements, and it is also a factor that fundamentally promotes the development of a city. Therefore, the city government should fully consider administrative benefits, not only economic benefits, but also social and environmental benefits; Not only short-term benefits, but also long-term benefits should be considered. Only when the net surplus value after comprehensive balance is the largest can the benefit be maximized. To ensure the best benefit of administrative behavior, we must first determine the organizational objectives scientifically. Don't blindly compare with others, be practical and have a certain creative space; There must be both digital goals and quality goals to avoid the low-level growth caused by blind pursuit of numbers. At the same time, we should take effective measures instead of copying, but learn advanced experience and practices and combine them with the actual situation in this area to produce good results.
To do the above work well, the city government should conduct a lot of comparative studies before making decisions, and also introduce external brains to participate in planning, mobilize all social forces, and ensure the optimization of decision-making and the effectiveness of measures, thus playing an important role in urban management and social development. (Liu Wenjian, Ma Yongjing, Research on Modern Cities)
VI. Evolution process of core business entities
The main business entities of core cities were born with the reform and opening up in China and the gradual formation of the real estate industry in China. Therefore, when we talk about the core subject of urban management, we must review the ups and downs of China's real estate industry and summarize how China's real estate industry has achieved three leaps of "builder-developer-core city management subject" in this gradually mature historical period.
1. Separation from the construction industry-builders
1980, Deng Xiaoping talked about "the construction industry is the pillar industry of the national economy" in "On the Construction Industry and Housing". The construction industry at that time actually refers to the sum of the real estate industry and the construction industry. Because the concept of "real estate industry" was not introduced in China at that time, the real estate industry and residential industry were collectively called "construction industry", and the real estate industry and construction industry were also calculated together in GNP.
In the same year, the National Conference on Housing Construction and Real Estate Management proposed that all localities should set up real estate management bureaus, and various forms of real estate development companies were established one after another. The real estate industry began to recover and quickly moved towards commercialization and market-oriented operation. The National Standards and Norms for Classification of National Economy Industries listed the real estate industry as an independent industry in 1984.
The report of the 13th Party Congress from 65438 to 0987 pointed out that the real estate market is an important part of the socialist market system. At this point, the real estate industry has been separated from the construction industry and quickly entered a stage of great development. Accordingly, at this stage, the provincial and municipal construction bureaus, including the General Administration of Construction Engineering of China, have gradually changed from a government enterprise to China Construction Group and Construction Engineering Corporation. For the first time, the commercial subject has changed from an official to a builder. The real estate industry has just had some market flavor, and a few enterprises that can't be completely called developers take land to build houses in a semi-planned and semi-market environment. Property buyers are collective, and at that time in a state of shortage economy, housing sales is a complete seller's market. At this time, although the developers had no idea at all, they led the real estate to commercialization. The main behavior of the first generation of developers is to build houses, which is essentially a builder. (Wu Wenkang's The Fourth Generation Developers Show the Charm of "New Real Estate Movement") Therefore, the industry at this stage still stays in the secondary industry-construction industry. As a derivative of the construction industry, the real estate industry is still in its infancy, far from meeting the connotation requirements of the real estate industry.
2. The formation of real estate industrialization-developers
In the early 1990s, due to the need of reform and opening-up, a number of hot cities for land development appeared, and it was also the first time in the history of New China that paid land transfer was implemented. Because the degree of marketization was not high at that time, the land itself contained huge profits. Some enterprises began to transfer land after obtaining the government's approval to transfer land. Therefore, land speculation has become the main behavior of developers, which led to the real estate bubble in the early 1990 s. Developers have thoroughly pushed the real estate industry to the market with fearless commercial feats. (Wu Wenkang's "The Fourth Generation Developers Show the Charm of the" New Real Estate Movement ")
In line with this, including the China Housing Group under the Ministry of Construction, the housing construction and development companies under the construction departments of provinces and cities, and the housing construction and development companies under the local construction departments at all levels, all belong to classified subjects. They all belong to the real "developers", because they not only undertake the development and construction of directional housing and land, but also participate in the operation of some real estates, but they are only developers in essence, and there is still a distance from the real operators. At this time, the real estate industry basically met the hardware requirements of the real estate industry.
3. The emergence of the market era? Giving birth to "authorized" urban core business entities
After the mid-1990s, with the birth of South China Plate, a large real estate market appeared all over the country, especially the rapid growth of high-tech industrial development zones, which put forward higher requirements for land use planning, architectural design, supporting infrastructure approval, large-scale real estate development and fund raising, which are beyond the reach of ordinary developers. Therefore, there are three-dimensional urban management entities, such as Nanyou Group, Zhongguancun Construction Group and Xi 'an Hi-Tech Group. They have a large amount of land reserves and the corresponding government approval authority for land planning, architectural design and supporting planning. At the same time, they can rely on government credit to guarantee loans for large-scale real estate development and operation, integrating government power, state-owned property rights and land management (real estate planning from a political perspective, May 2 1 2003). This trinity of government and business is the "authorized" core business subject we classified earlier. It is also under the guidance of these core business entities and the enthusiastic participation of other urban business entities that many large-scale and high-tech industrial development zones have been born rapidly all over the country.
Seven, the core business entities and "city operators"
In the previous discussion on the concept of urban management, we once said that a city has many resource elements, such as land, infrastructure, culture, science and technology, energy and so on. Like the city's telecom industry, the main body of its operation is telecom operators, and the main body of the power industry is power operators. In this case, some scholars will definitely ask: What is the concept of city operators? What is his object of operation? Is it all the resources of a city? If not, it should be called a land operator or an infrastructure operator, a cultural operator or a technology operator. So the problem lies here, which is the concept of "city operator" put forward by many scholars at present.
As we all know, urban management, as a behavior system, must include three elements; The first is the subject element of behavior, the second is the object element of behavior, and the third is the process of behavior. Because the concept of "city operator" is extremely inaccurate.
First, the type, status and characteristics of "city operators" are not pointed out;
Secondly, the specific object of urban management is not pointed out;
Third, there is no clear division of functions and relationship between "city operators" and other city operators;
Fourth, the phased mission of "city operators" is not reflected. Urban management is the product of the primary stage of urban development and the special historical stage of institutional transformation. After the city develops to the middle and mature stage, the focus of urban management will shift to the industry or urban culture, brand and even urban management or service in a mature market economy. The phased mission characteristics of urban operators can not be reflected in the concept of "urban operators", and it is not necessary to call it urban management in a mature market economy.
Fifth, because the city is a small society, land and infrastructure, culture, science and technology, and energy are only a part of urban resource elements, and cannot represent everything of a city's resource elements. So we can't be called "urban operators" just because we only deal in real estate in urban resource elements. Because, it is easy for people to have a feeling of being partial and grandstanding.
To sum up, we think that the concept of city operators is extremely unscientific and difficult to justify.
Section IV Basic Concepts and Status of Commercial Subjects in Subordinate Cities
First, the basic concept of urban operating entities
The so-called subordinate urban management subjects refer to legal persons, natural persons or other institutions that take urban management subjects as the core and participate in the development and management of urban resource elements such as land, infrastructure, science and technology, culture and energy during the specific period of China's system transformation and the initial stage of urban development, as well as the adjustment of national laws, regulations or policies.
Second, the characteristics of commercial entities in subordinate cities
1.
Under the guidance of the adjustment of national laws, regulations or policies and the core city operators, the operators of subordinate cities are passive, guided and subordinate in their management and development of urban resource elements. They are purely corporate legal persons or natural persons, and they do not have government functions, nor do they have large-scale urban resource elements such as land or infrastructure.
2. Privatization
Because its investment subject is an enterprise legal person or natural person, the income must belong to the enterprise or individual.
3. Complex number
The business entities of subordinate cities are relatively complex, including wholly foreign-owned enterprises, private enterprises, Sino-foreign joint ventures, collectively-owned enterprises, individuals or other organizations.
Step 4: Stage
The subordinate position of the subject of subordinate city management comes from the stage of urban management, which is the product of the times in the specific transition period and the primary stage of urban management in China. When the city of China develops to a mature stage, the status of each subject will be on the same platform, and naturally there will be no distinction between core and subordinate.
Section 5: Relationships among Business Entities in Various Cities
First of all, in the early stage of urban management, it is necessary to draw a prelude with the help of government forces, concentrate the limited state-owned assets that were originally scattered in various functional departments of the city, make unified dispatch, and give full play to the limited advantages of urban resources.
Secondly, due to the transitional stage, the coordination between government functions and the public sector can only be completed by the government itself, and other non-state-owned capital-based business entities cannot and cannot complete this historical mission.
Thirdly, only after the integration of urban development and construction with urban management and market cultivation, the core business entity of the city, which combines government and business, can formulate more specific strategic plans, policies and regulations of "unified planning, rational layout and comprehensive development" according to the specific situation of the market, guide and supervise other business entities to actively participate in and standardize their operations, and ensure the standardized and orderly development of the city.
Finally, only when the core subjects of urban management personally take the lead in specific market development and management and gain profits can the subordinate urban management subjects see that the public sector in urban management contains huge economic benefits, thus attracting and encouraging more business subjects to participate in urban management and development. Judging from the1.8000 square meter large-scale comprehensive community of Wei Zi Garden City and the 5 square kilometer Chang 'an Science and Technology Industrial Park led by the New West Industrial Development Company of Xi 'an High-tech Group, only this core business entity can operate the market, carry out the "city-building movement" and undertake the core responsibility of urban management. China city management, the first part, the third chapter, the theme of city management.