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    中國國際經濟交流中心

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    上海自貿區臨港新片區三大使命:全球化支撐、高質量發展引擎與金融開放高地
    時間:2019年08月08日????作者:魏建國

     

    來源:21世紀經濟報道    時間:2019-08-08

     

    8月6日,國務院同意設立中國(上海)自由貿易試驗區臨港新片區,《中國(上海)自由貿易試驗區臨港新片區總體方案》提出,臨港新片區將對標國際上公認的競爭力最強的自由貿易園區,打造“更具國際市場影響力和競爭力的特殊經濟功能區”。

    新片區承擔哪些歷史使命,如何帶動長三角新一輪改革開放?21世紀經濟報道(下稱《21世紀》)專訪了中國國際經濟交流中心副理事長、商務部原副部長魏建國。

     

    中國支持全球化的新舉措

    《21世紀》:上海自貿試驗區原來的定位是打造“國際高標準自由貿易園區”,臨港新片區的定位是打造“更具國際市場影響力和競爭力的特殊經濟功能區”,如何理解這兩個定位上的不同?

    魏建國:臨港將對標國際上公認的競爭力最強的自由貿易園區,實施更具國際市場競爭力的開放政策和制度。所謂“特殊經濟功能區”,是指它應比其他自貿區更加開放與自由,在大膽闖、大膽試、自主改上要有新突破。

    上海從改革開放以來是有所落后的,臨港新片區的設立可以視為新一輪改革開放以來上海的“再出發”。

    特殊經濟功能區的核心是要實現投資貿易的自由化,其關鍵是上海在制度方面做出徹底變革。比如說,能不能在短期之內在整個臨港自貿區實現零關稅、零壁壘、零補貼。上海要在海關、金融、稅收等監管領域拿出特殊的東西,進一步減免稅費、放松監管。

     

    《21世紀》:臨港新片區承擔著哪些使命?

    魏建國:我認為,臨港新片區承擔著三大歷史使命。

    第一是全球化的新支撐。中國積極支持全球化,支持以規則為基礎的多邊體制的發展與完善。不過,當前世界保護主義、單邊主義逆流涌動,全球化面臨著巨大的挑戰,需要中國進一步擴大開放,更深入地融入全球化。增設上海自由貿易試驗區新片區,是中國將繼續擴大開放的重要宣誓。

    第二是中國經濟高質量發展的新引擎。這需要推動經濟的質量變革、效率變革和動力變革。中國正在踐行新發展理念,持續推進供給側結構性改革,以高水平對外開放倒逼高質量發展。臨港新片區首次在一個自貿區總體方案中就產業發展做出了整體部署。

    第三是金融開放的新高地。自貿區是個大引擎,金融是燃料,現有的12個自貿區在金融領域都有一些探索,但實際上與倫敦金融城等先進地區相比還有很大的差距。上海在全球金融中心建設上還需要進一步發力,臨港自貿區為此提供了一個重要平臺。

     

    打造世界高端制造集聚區

    《21世紀》:以前的自貿區主要側重于貿易、投資、金融等領域的改革與開放,但臨港明顯更側重于制造業,尤其是高端制造業的發展,對此你怎么看?

    魏建國:眼下中國仍屬于全球產業鏈的中低端,亟需推動產業結構的升級。

    臨港片區方案明確提出,集聚發展集成電路、生物醫藥、人工智能、航空航天等我國高質量發展急需產業的關鍵環節和技術。從全球產業鏈的視角來看,這里強調的不是籠統的產業,而是關鍵環節和核心技術,這正是中國的短板,也是從組裝等勞動密集型產業走向產業鏈更高端的重要方向。

    未來臨港有可能在稅費減免、土地供給、人才吸引等方面出臺更有力的措施,下一步上海極有可能在臨港形成一個世界性的產業高度發達、投資貿易極度便利的巨大的現代化高端制造集聚區。

     

    《21世紀》:為什么臨港有可能形成一個現代化高端制造集聚區?

    魏建國:很多人都說,未來的科技創新中心將是深圳,我覺得上海臨港也有很大的潛力,后者體量更大,輻射帶動作用也更強。

    從臨港本身看,其在高端制造領域的基礎不錯,能夠承載國家戰略和新興產業發展需要,具有一定的發展空間;區域內運輸條件非常優越,有洋山深水港、浦東國際機場,有鐵路、高速公路、軌道交通,另外還有高等級的內河航道,是國際上同類地區運輸條件最完善的。

     

    《21世紀》:臨港新片區先行啟動區域面積為119.5平方公里,這和其他自貿區的面積大致相同,如何看待這一面積的選擇?

    魏建國:目前十幾個自貿區的面積都是120平方公里左右,主要考慮這些因素:

    第一是便于監管,作為特殊監管區域,自貿區一般會設立物理圍網,放開一線、管住二線。這有利于一些政策在特定范圍內大膽試大膽闖,開展壓力測試,即便一些試驗出現了問題,風險也是可控的。

    第二,對照全球來看,120平方公里也算不小。在這樣一個區域里,有利于讓更多產業落地,這樣的體量也有一定的輻射、帶動力。未來二三十年,臨港可能像剛解放以后上海工業基地所發揮的作用一樣,奠定中國高質量發展的基礎。

    120平方公里是先行啟動區的面積,臨港片區側重于高端制造業與實體經濟,和加工貿易、金融等行業不同,這需要在土地供給上更有彈性。

    需要注意的是,臨港新片區的設立不是整體開發,一下投很多錢,而是有序的做制度性探索。增設新片區不是原有自貿試驗區簡單的擴區,也不是現有政策簡單的平移,而是全方位、深層次、根本性的制度創新變革。

    引領長三角一體化的龍頭

     

    《21世紀》:如何理解臨港新片區全方位、深層次、根本性的制度創新變革?

    魏建國:這種根本的制度變革必須做到五個“自由”,即投資自由、貨物流動自由、人員流動自由、資金流動自由、信息流動自由。

    在投資上,臨港不光要大力吸引外資,也要吸引更多的民營企業,不僅要有騰訊、阿里巴巴,也要有谷歌、亞馬遜,并且對他們一視同仁。

    貨物流動需要海關等領域進一步放松監管,比如進博會上很多國家希望在中國設一個點進行產品加工,我們能否允許一個葡萄牙公司在臨港開展橄欖油的封裝?這種案例很多,從法國紅酒、西班牙火腿到瑞士手表,中國日益增長的4億多中產階級市場消費能力,對全球而言都是無法錯過的機會。貨物流動既能滿足人民美好生活的需要,也能帶動產業的升級與高質量發展。

    資金方面,能否推動資本項下的進一步開放,臨港應當考慮在金融領域實施大膽改革。比如放開存款利率,進一步放松國外銀行金融機構的準入,優化外匯管理,放松對外投資審批等等。

    信息流動也是進一步開放的重點,信息不對稱仍然普遍存在,信息的自由流動有利于幫助外向型企業找到方向。

    人員方面,臨港也要集聚全世界最高端、最優秀的人才。

     

    《21世紀》:方案發布會后,備受關注的是,臨港新片區放寬了非戶籍人才的購房限制,對此你怎么看?

    魏建國:放松限購的主要目的是吸引國內外人才。臨港地區是一個人口密度相對較小的地方,目前人口只有幾十萬,其高水平的開放與產業發展需要集聚并容納更多的高端人才。上海期待在此形成一個人才洼地,拿出一部分政策與資金,通過改善住房、交通、教育、醫院等服務來招攬人才。

    臨港不能只面向國內集聚企業家與投資者,更要面向全世界,招攬更多的發明者、創造者、科學家、工程師、技術人員。這需要進一步完善綠卡制度,另外需要制定專項的人才吸引計劃。在吸引人才方面,更重要的是要創造良好的就業機會,大幅減免個人所得稅。

     

    《21世紀》:為何臨港新片區方案多次強調長三角協同發展,以新片區帶動長三角新一輪改革開放嗎?

    魏建國:長三角的蘇州、無錫等地在吸引外資方面很發達,比如中新蘇州工業園區等,但最近我在這些地方看到不少問題,有些地方開始出現落后。

    不少勞動密集型產業、加工貿易產業面臨成本抬高、利潤下降的瓶頸,在新一輪的全球化中,其競爭力有所下降,產業結構亟待轉型升級。繼續開展以前的筆記本電腦、手機等低端加工貿易已難以為繼,但是轉向高端的芯片設計與制造又面臨著很多困難。

    跟不上趟、找不到方向,是這些地方很多企業的普遍困惑,以上海為龍頭帶動長三角的一體化發展是一個現實的路徑。在進博會上,長三角一體化上升為國家戰略,還提出設立上海自貿區新片區,后者從一開始就肩負著長三角協同發展的使命。

    從世界范圍看,未來全球的競爭不是單個城市的競爭,而是城市群的競爭,而城市群需要一個龍頭帶動,美國舊金山灣區、日本東京灣區、英國倫敦灣區都是如此。這些也是國際上公認競爭力最強的自由貿易區,臨港應當以此為對標,引領整個長三角地區的高質量發展,積極擁抱新一輪的全球化。

     

     

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