Background of cultural system reform

The Ninth Prospect of the Sixth Plenary Session of the Seventeenth Central Committee

Cultural System Reform: Progress, Difficulties and Prospects

First, the background and motivation of cultural system reform

China's traditional cultural system was formed under the planned system since the founding of the People's Republic of China. It has the obvious characteristics of single state-owned capital investment subject, no distinction between management and operation, no distinction between government and enterprise, no distinction between government and capital, fragmentation of urban-rural dual structure and allocation of resources by administrative means under the guidance of ideology. It should be affirmed that under the condition that China's cultural undertakings were "poor and white" at the beginning of the founding of the People's Republic of China, this system is conducive to concentrating resources on the construction of cultural infrastructure, the construction of cultural teams and the creation and production of cultural products, thus playing a positive role in cultural development in a certain period of time. However, the inefficient allocation of administrative resources, coupled with the interference and destruction of frequent political movements, has led to a serious shortage of cultural products and services. Since the reform and opening up, with the deepening of the economic system reform and the rapid development of the national economy, profound changes have taken place in the economic basis, institutional environment, social conditions and communication methods of cultural survival and development. On the basis of a substantial increase in the income level of urban and rural residents and the basic satisfaction of food and clothing, the people's spiritual and cultural needs are increasingly awakening, forming a multi-level, diversified and diversified cultural market pattern, and the independent, interactive and entertaining mass cultural consumption mode has become a new trend and trend, thus putting forward new requirements for the production mechanism and providers of cultural products and services. However, due to the serious lag of China's cultural system reform, there are obvious gaps between economic system and cultural system, and between economic development level and cultural development level. Under the condition of market economy, how to understand the relationship between social attributes and commodity attributes of cultural products, organically combine cultural construction with market mechanism, give full play to the basic role of the market in the process of allocating cultural resources and elements, coordinate the development of culture and economy, improve the vitality and competitiveness of China culture, and meet the growing cultural needs of the people has become the direct driving force for China's cultural system reform.

Internationally, since the 1980s, with the acceleration of economic globalization, the new technological revolution and the rise of knowledge economy, economy and culture have been increasingly integrated, and economic culturalization and cultural economization have become new development trends. Emerging industries such as information industry and cultural industry have developed rapidly and become pillar industries of western powers such as the United States, Britain, Japan, Germany and France. The American film industry, the British creative industry, the German publishing industry, the Japanese animation industry and the Korean film and television industry all attract the attention of global consumers, which not only become an important source of profits and wealth, but also a sharp weapon to realize the global expansion of their industries. Cultural media groups in western developed countries, such as time warner Inc. Company, Disney, News Corporation, Bertelsmann in Germany and Sony in Japan, have rapidly grown into international cultural media giants with transnational operations, accounting for about 70% of global cultural trade. As a new field of global competition, cultural market has a far-reaching impact on the global economic and political pattern and the development of human civilization with its great influence and penetration. As the largest developing country in the world, China basically did not participate in this process because of the closed traditional cultural system, which led to the small scale of China's cultural industry and weak competitiveness, and the long-term huge deficit in cultural service trade, which was not commensurate with China's status as an economic power and a cultural resource power. At the same time, due to the dominant position of western developed countries in the cultural industry, cultural copyright trade has always been the focus of negotiations with China when China joined the WTO in the 1990s. Western developed countries, led by the United States, strongly demand that China open its cultural market and enter the cultural field of China in various ways in some fields. Under the condition of economic globalization, it is obvious that China's cultural construction can not be divorced from the track of human civilization development, nor can it realize its own development without participating in the competition in the international cultural market. How to adapt to the development trend of international cultural industry, gradually open the cultural market according to international rules, and accelerate the development of China's cultural industry by joining the international division of labor system, so as to meet the challenges of international transnational cultural media groups, improve China's cultural competitiveness and soft power, and enhance the international influence of Chinese culture, has become the external driving force for China's cultural system reform.

Driven by the new technological revolution, the appearance and application of Internet and digital technology have greatly changed the way of cultural communication and become another important driving force for the cultural system reform in China. On the one hand, the application of Internet and digital technology in the cultural field has transformed the traditional one-way cultural communication into interactive communication, and the distance and boundary between producers and consumers of cultural products have become increasingly blurred. On the other hand, the infinite expansion of communication channels and carriers leads to a serious shortage of content, and content innovation and cultural creativity have become the core and key to promote the development of cultural industries. This change objectively requires the transformation of the traditional cultural system, from a single state-owned provider to a diversified and interactive provider, forming a vivid situation in which the whole society develops innovative culture and provides rich and diverse cultural products and services. At the same time, the rapid development of emerging technologies and means of communication also requires breaking the pattern of administrative resources allocation and fragmentation in the traditional cultural system, so that cultural resources and production factors can quickly flow and optimize their combination across borders to meet the objective requirements of the development of cultural productivity. At the beginning of the new century, China's cultural system reform started, which coincided with the widespread promotion of Internet and digital technology in China. This is no coincidence.

The second is a review of the progress of the cultural system reform pilot.

On June 5438+065438+ 10, 2002, the 16th National Congress of the Communist Party of China put forward the conclusion that cultural productivity is an important symbol of comprehensive national strength, and developing cultural industries is an important way to achieve great cultural development and prosperity and meet the growing spiritual and cultural needs of the people under the condition of market economy, and put forward the idea of emancipating the mind and seeking truth from facts. According to the different characteristics of cultural undertakings and cultural industries, we will carry out pilot cultural system reform, establish a new cultural system of "Party Committee leadership, government supervision, industry self-discipline, enterprises, institutions and cultural units operating according to law" that is compatible with socialist spiritual civilization and market economy, liberate and develop cultural productive forces, and promote the development and prosperity of China's cultural market. In June 2003, the Central Committee held a conference on the pilot work of cultural system reform, and decided to select 9 provinces and cities including Beijing, Shanghai, Zhejiang, Guangdong, Shenzhen, Lijiang, Chongqing, Xi and Shenyang and 35 state-owned cultural units to carry out the pilot work of cultural system reform. Some provinces and cities have also selected several regions and state-owned cultural units for pilot reform, but they do not enjoy the policy of national pilot areas. The prelude of China's cultural system reform was officially opened. The progress of the pilot project is briefly summarized as follows:

1. Breakthrough progress has been made in opening the entry threshold for investment in the cultural market, developing private and mixed cultural market players, and mobilizing the whole society to participate in cultural construction. Since the pilot reform of the cultural system in June 2003, the Ministry of Culture, the General Administration of Press and Publication, the State Administration of Radio, Film and Television and other relevant departments have successively issued a series of documents, opening up investment fields such as performances, newspaper publishing, film and television program production and distribution, cinema construction and operation, and non-news radio and television program production to non-public capital. In March, 2005, the Ministry of Finance, the General Administration of Customs and State Taxation Administration of The People's Republic of China issued the Notice on Several Tax Issues Concerning Supporting the Development of Cultural Industry in the Pilot Reform of Cultural System. In April, the State Council issued the Decision on Non-public Capital Entering the Cultural Industry, which clarified and standardized the boundaries of encouraging, allowing, restricting and prohibiting non-public capital from entering the cultural industry. In order to make more effective use of foreign capital to develop China's cultural industry and ensure China's cultural security, in August of the same year, the Ministry of Culture and other five ministries and commissions issued "Several Opinions on Introducing Foreign Capital in the Cultural Field", which also stipulated the scope and shareholding ratio of foreign capital entering China's cultural market. The above-mentioned series of policies and measures have stimulated the enthusiasm of social capital to enter the cultural industry. According to the data provided by the Ministry of Culture, among the cultural industries managed by cultural departments, the added value of cultural industries created by non-public capital has accounted for more than half of the total added value of cultural industries, and the number of employed people accounts for two-thirds. Movies made by social capital and foreign capital account for more than 80% of the total output. The development pattern of cultural industry with public ownership as the main body and extensive participation of social capital and foreign capital has taken shape, which has promoted the rapid, healthy and orderly development of China's cultural industry.

2. According to the reform policy of "classified guidance" for cultural undertakings and cultural industries, state-owned operating cultural institutions have taken important steps in transforming enterprises into restructuring and reshaping market players. According to the classification reform requirements of "innovating system, transforming mechanism, facing the market and enhancing vitality" and the spirit of "Notice on Supporting the Development of Cultural Industry and the Transformation of Operating Cultural Institutions into Enterprises in the Pilot Reform of Cultural System" issued by the General Office of the State Council on June 5438+February 2003, all pilot areas actively promoted cultural industries such as performances, newspapers, publishing, printing, radio and television, advertising, film and television program production and distribution, and cinema construction and operation. By the end of 2006, 1 1 publishing house,11state-owned film studios, 23 film companies and 29 provincial and municipal art troupes had completed the enterprise transformation and restructuring. At the same time, drawing lessons from the experience of state-owned enterprise reform, we have made great achievements in cadre and personnel system, income distribution system, social security system and state-owned enterprise reform. Among them, some state-owned cultural institutions that have completed the transformation from enterprises to enterprises have also carried out pilot joint-stock reform. For example, Shanghai Century Publishing Group absorbed relevant state-owned and private capital, and set up Shanghai Century Publishing Co., Ltd. with part of its operating publishing business as the main body. China Insurance News Co., Ltd. was established in April, 2005, which absorbed 65,438+00% of private capital investment and had a wide influence in the industry.

3. State-owned public welfare cultural institutions have made positive progress in the reform, exploration and construction of public cultural service system. According to the classification reform requirements of "increasing investment, changing mechanism, enhancing vitality and improving service" for public welfare cultural institutions, Beijing Chaoyang Cultural Center, Shanghai Painting Academy, Chongqing Hongyan Link and other cultural institutions have made beneficial explorations in promoting the reform of cadre and personnel system, income distribution system, introducing market competition mechanism and improving the quantity and quality of public services, and achieved remarkable results. The pilot areas have generally increased investment in public cultural services, and Shenzhen, Hangzhou, Beijing and other places have also explored government procurement and government subsidies for public cultural products, which have received good results. In April, 2005, the State Council issued "Opinions on Deepening Economic System Reform in 2005", and put forward "Accelerating the Construction of Public Cultural Service System" for the first time. In June+10, 5438, the Fifth Plenary Session of the 16th CPC Central Committee adopted the "Proposal of the Central Committee on Formulating the Eleventh Five-Year Plan for National Economic and Social Development", which clearly stated that "increasing investment in cultural undertakings and gradually forming a relatively complete public cultural service system covering the whole society". The State Administration of Radio, Film and Television (SARFT) clearly proposed to build a public service system for radio and television, and designated 2005 as "Year of Agriculture" to basically realize "every village has access to radio and television" in remote rural areas. The Ministry of Culture and the National Development and Reform Commission jointly implemented two county-level libraries and cultural centers. During the four years from 2002 to 2005, the state invested 480 million yuan to build, rebuild and expand 1078 county-level libraries and cultural centers with no libraries or backward facilities, which solved the problems of blank and backward facilities in two county-level libraries and played an important role in improving the backward situation of rural public cultural services. As a pilot area of cultural system reform, Guangdong Province has initially formed a four-level public cultural service network at the provincial, prefectural, county and township levels through several years' efforts.

4. Important achievements have been made in the reform and construction of the cultural market circulation system. According to the requirements of the pilot work, in order to cultivate market circulation subjects, get rid of the long-standing drawbacks of state-owned economic monopoly and government fragmentation management in China's cultural market, promote the free flow and optimal combination of cultural resources and elements, form a unified, open and orderly cultural market with wide participation and fair competition of all kinds of market subjects, and create a good market environment for the development of cultural undertakings and cultural industries, all pilot areas actively promote the reform of the cultural market circulation system and strive to develop chains while opening the market access threshold to private and foreign investors. Taking the news publishing industry as an example, Xinhua Bookstore in all provinces, municipalities and autonomous regions has basically completed the formation of enterprise groups and enterprise restructuring. There are 29 chain stores nationwide, and 23 provincial Xinhua Bookstores have realized chain operation within the province or across provinces and cities. Five book logistics centers with an area of 6,543,800 square meters have been built nationwide, with 654.38+ 00 stores with annual profits exceeding 10 million yuan, 8 private chain stores nationwide, 6,543,800 private distribution outlets, and more than 40 Sino-foreign joint ventures, Sino-foreign cooperative or foreign-funded book and newspaper distribution enterprises. At the same time, the Ministry of Culture, the State Administration of Press and Publication, the State Administration of Radio, Film and Television and other the State Council authorities cooperated with local governments to establish Shenzhen International Cultural Industry Expo, Beijing International Cultural and Creative Industry Expo, and three regional cultural industry fairs in Northeast China, Central China and West China, forming a large-scale cultural product circulation and factor allocation platform integrating cultural product fairs, forums, copyright transactions, investment and financing. In addition, large-scale specialized cultural products trading platforms such as Beijing Book Fair, Shanghai International Film Festival, Hangzhou International Animation Festival, Guangzhou International Audio-visual Expo and Chengdu Radio, Film and Television Expo also have their own characteristics. It has played a positive role in developing and perfecting China's cultural products and factor markets and promoting the development of cultural industries.

5. Cultural and economic policies have been continuously improved, and the reform of cultural investment and financing system has achieved remarkable results. The reform of the cultural system was carried out under the leadership of the party and the government. In order to realize the transformation of state-owned cultural institutions into enterprises under the traditional system, a series of problems such as personnel identity transformation and historical bad debts need the government's help to solve and pay the necessary reform costs. At the same time, the innovation, production and dissemination of cultural products are different from ordinary material products, but they have a certain degree of market failure, so the government also needs to give support in fiscal and taxation policies. Since the pilot, the central authorities and comprehensive departments of the State Council have successively formulated a series of policies and measures to support the pilot reform and industrial development. First, preferential tax policies. In the pilot areas, the enterprises transformed into enterprises will be granted a three-year income tax exemption policy, and the period for national news publishing units to enjoy the income tax exemption policy will be extended to 2008. The newly established cultural enterprises in the pilot areas will receive a three-year income tax reduction and exemption policy, and cultural products will receive export tax rebates. The second is the financial support policy. The state finance has successively invested in the establishment of special funds for the development of propaganda culture, the creation and performance of excellent dramas (festivals), the development of national film industry, the development of fine films and the development of publications, and strengthened support for public cultural undertakings and original fine cultural products by incremental investment. Through joint implementation with the National Development and Reform Commission, the Ministry of Culture, and the State Administration of Radio, Film and Television, major cultural construction projects such as the National Stage Art Boutique Project, the China National Folk Culture Protection Project, the National Cultural Information Resource Sharing Project, the China Rare Books Reconstruction Project, the Qing History Compilation Project, the Radio and Television Village-to-Village Project, and the Western New Project have promoted the public cultural construction in rural areas and the central and western regions, as well as the cultural heritage protection and cultural content construction. The third is to explore the market-oriented cultural investment and financing mechanism. Jiangsu Province set up a cultural industry investment company with an incremental financial investment of 200 million yuan, and explored ways and means to build a strategic investor in the cultural market with mixed economic structure and promote the rapid growth of the cultural industry with state-owned capital as the main body and extensive absorption of social capital. Shanghai invested 500 million yuan to comprehensively and systematically reform the operation mechanism and funding method of the former Shanghai Cultural Development Foundation, forming a market-oriented operation mechanism of "government entrusted investment, expert management, separation of management and operation, and social funding" and becoming the first standardized regional cultural foundation in China. In the restructuring, Shanghai Xinhua Distribution Group tried to sell 49% of the state-owned assets on the property rights exchange, and absorbed social capital to invest in shares. With the state-owned net assets of 65.438+0.6 billion yuan, the transfer income was 348 million yuan, which greatly enhanced the value of state-owned assets. In 2006, on the basis of the restructuring of Xinhua Media Co., Ltd., enterprises went public on the Shanghai Stock Exchange, which took a solid step to explore how the cultural industry developed in the capital market.

6. The reform of government cultural management and market supervision system was initiated, and cultural legislation was gradually strengthened. In order to adapt to the development trend of cultural industry integration, according to the instructions of the central government, the pilot areas try to merge the three government departments in charge of culture, press and publication, radio and television to comprehensively exercise cultural management functions. At the same time, the law enforcement teams of industry and commerce, taxation and various cultural departments will be integrated into comprehensive law enforcement agencies. These two measures have played a positive role in solving the problems of multiple policies, overlapping functions and compartmentalization in the cultural administration system, as well as "offside" and "absence" in market supervision, and also accumulated experience for the reform of cultural administration and market supervision system of national and provincial governments in the future. At the same time, the promulgation of a series of laws and departmental rules, such as the revised Copyright Law, the Regulations on Film Management, the Regulations on Publishing Management and the Regulations on Commercial Performances, has promoted the process of cultural legislation in China and gradually made the cultural management in China step into the legal track.