1. Strengthen the management and centralized introduction of export-oriented productive projects and import substitution projects.

The Ministry of Foreign Trade and Economic Cooperation, the State Economic Commission, the State Planning Commission and other departments believe that the main reason for the initial problems in the implementation of "market-for-technology" is that when using foreign capital since 1979, "there is a lack of unified national planning, decentralized management and multiple policies, and the problems can not be solved in time; After the decentralization of examination and approval authority, there is a lack of industry guidance, information is ineffective, and there are some unnecessary redundant constructions. " 1986 puts forward the rectification direction: "under the overall national planning, rationally arrange capital investment, focus on introducing advanced technologies urgently needed by the country, and vigorously develop foreign exchange earning projects."

In order to stop the repeated introduction and construction, the implementation of "exchanging market for technology" and "pushing ahead with production" can allow foreign-funded enterprises in China to buy goods that cannot be processed and produced at home at present and need to be purchased abroad, which is called "pushing ahead with production". The relevant ministries and commissions put forward two solutions: first, strengthen management, unify planning, put forward the scale and direction of attracting foreign investment in the annual and medium-and long-term and conduct project demonstration; Second, correctly guide capital investment, make good use of tax and import and export management policies, and focus on attracting foreign direct investment in productive projects and export-oriented and import-oriented projects that introduce advanced technologies urgently needed by the country. Projects that restrict the introduction of domestic advanced technology, the production capacity has exceeded the domestic market demand, and the products cannot be exported in whole or in large part; It is forbidden to hold projects that simply introduce assembly lines, assemble imported parts for domestic sales, and earn the price difference at home and abroad; The State Planning Commission and the State Economic Commission shall, jointly with the Ministry of Foreign Trade and Economic Cooperation and the competent departments of industries, study and formulate a catalogue of encouraged, restricted and prohibited projects. It can be seen that the direction of the first adjustment of the "market for technology" policy is to strengthen the management of project introduction, focusing on the introduction of export-oriented productive projects with advanced technology and import substitution projects urgently needed by the country.

2. From central government to local government, "market for technology" is in full swing.

After the adjustment direction was determined, the central government strengthened the policy of "market for technology" by formulating laws and regulations and holding meetings. At the same time, local governments have also introduced relevant policies to open the market and introduce technology, and "market for technology" has begun to be fully launched from the central government to the local government.

The development of the central policy level mainly starts with legislation and policy formulation. In legislation, the principle of "market for technology" has been written into the Law on Foreign-funded Enterprises and other laws and regulations. 1April, 986, The Law of People's Republic of China (PRC) on Foreign-funded Enterprises stipulates that "the establishment of foreign-funded enterprises must be conducive to the development of China's national economy, adopt advanced technology and equipment, or export all or most of their products." This provision can be regarded as an implicit expression of "exchanging market for technology". 1990 the newly revised law on Chinese-foreign joint ventures clearly stipulates that a joint venture will not be nationalized or expropriated, and the foreign party can also serve as the chairman. A joint venture may or may not stipulate the term of the joint venture, and the policy space of "exchanging market for technology" is further expanded. In terms of policy, the policy of "exchanging market for technology" has been intensively written into the policy documents of utilizing foreign capital. 1in July 1986, the state proposed to encourage foreign investment by combining "market for technology" and "production for development", and "resolutely implemented the policy of market for technology, implemented measures to replace imports, and encouraged foreign investors to provide advanced technology. Where foreign-invested enterprises have been mass-produced, the performance and quality have basically reached the level of similar foreign products, and the price and delivery time meet the needs, products that need to be imported must be given priority in China. The State Economic Commission will successively publish product catalogues and take administrative and economic measures to prohibit or restrict imports. " 10 6 1 1 day, the State Council issued the "Regulations of the State Council on Encouraging Foreign Investment" with great guiding significance, which explicitly granted two types of production-oriented foreign-invested enterprises (product export enterprises and advanced technology enterprises) a number of special benefits, such as foreign exchange, taxation, autonomy and expanding the proportion of domestic sales. 1987 10 in order to further encourage foreign investors to set up advanced technology enterprises in the way of "pushing ahead with production", the state planning commission promulgated the "measures of the state planning commission on products of sino-foreign joint ventures and cooperative enterprises pushing ahead with production". At the initial stage of production, it is temporarily difficult to achieve foreign exchange balance in the process of localization. But at the same time, it is necessary to clarify the proportion of domestic and foreign sales of products of joint ventures and cooperative enterprises, as well as the progress of localization, and limit projects that do not provide advanced technology, simply import parts and assemblies, and products are only sold domestically. This method will also list the commodities that can be promoted by production one by one, mainly including steel, pig iron, copper and so on 12, making the policies of "exchanging market for technology" and "promoting by production" more operable.

The "market for technology" policy is mainly implemented by local governments in accordance with the spirit of "Regulations of the State Council on Encouraging Foreign Investment". After the promulgation of 1986, supporting preferential policies were quickly introduced all over the country, which set off a climax of utilizing foreign capital. Beijing, Liaoning, Guangzhou, Anhui and other places have introduced preferential policies. For example, Anhui Province stipulates that "foreign-invested enterprises may, with the approval of relevant departments, expand the proportion of domestic sales to all domestic sales and settle some or all of them in foreign exchange if their performance, quality and price are basically the same". Provisions of Anhui Provincial People's Government on Encouraging Foreign Investment,1986165438+1October 24th. With the further decentralization of 1988' s approval authority for introducing foreign capital, various places compete to introduce preferential policies, and some even introduce them at no cost. In view of this, at the end of 1990, while affirming that absorbing foreign investment is a long-term policy for economic development, the central government proposed to "strictly implement the laws, regulations and policies and measures promulgated by the state to encourage foreign investment and stop the practice of issuing preferential measures in disguised form in violation of state regulations", "further improve the investment environment, guide foreign investment in accordance with industrial policies, run more export-oriented and technologically advanced projects, and pay attention to combining absorbing foreign investment with accelerating technological transformation of enterprises". 1992 ~ 1996: secondary adjustment and rapid development.

1. Second adjustment: strengthen industrial guidance and attract projects with high technical level and large investment scale.

At the beginning of reform and opening up, the introduction of foreign capital and advanced technology was characterized by regional tilt (concentrated in special economic zones and coastal open cities), and the second adjustment was oriented by industrial tilt, which eliminated the blindness of introducing foreign capital and guided foreign capital to invest in long-term large-scale projects such as energy, transportation, raw material industry and infrastructure. The means is industrial policy guidance.

1in March, 1992, the minutes of the 16th meeting of the leading group for foreign investment in the State Council pointed out, "At present, we should continue to make efforts to improve the investment environment and improve and perfect various foreign-related laws and regulations; It is necessary to further strengthen the direction of foreign investment. While continuing to encourage foreign investors to set up high-tech enterprises and export enterprises, and to encourage foreign investors to invest in energy, transportation, raw materials and other fields, we should adopt the policy of exchanging market for technology to attract large foreign enterprises to set up projects with high technical level and large investment scale in China, so as to improve the overall level of China's utilization of foreign capital. It is necessary to gradually expand the fields of attracting foreign investment and study how to promote the development of the tertiary industry by introducing foreign investment. " And clearly put forward that "the State Planning Commission should take the lead in relevant departments to study and put forward how to adopt the policy of exchanging market for technology and attract large foreign enterprises to invest in China". This shows that the emphasis of "market for technology" has changed greatly, and it is required to attract large foreign enterprises to set up projects with high technical level and large investment scale in China, so as to improve the level of utilizing foreign capital.

1993165438+10, the third plenary session of the 14th Central Committee of China proposed "improving the investment environment and management measures, expanding the scale of introduction, broadening investment fields and further opening up the domestic market. Create conditions to implement national treatment for foreign-invested enterprises and improve the management of foreign-invested enterprises according to law. Guide foreign investment to focus on infrastructure, basic industries, high-tech industries and technological transformation of old enterprises, and encourage the establishment of export-oriented enterprises. Give full play to the comparative advantages of China's resources and markets, attract foreign investment and technology, and promote economic development. " Introducing foreign capital, technology, talents and management experience can be achieved by further opening up the domestic market, which is essentially a policy of "exchanging market for technology" and also emphasizes industrial guidance for foreign capital.

In order to attract projects with high technical level and large investment scale through "exchanging market for technology", the state has successively promulgated the outline of national industrial policy in the 1990s, the interim provisions on guiding foreign investment direction and the 1994, 1995 industrial guidance catalogue for foreign investment, making the industrial policy direction more specific. The Outline of National Industrial Policy in 1990s points out in Article 3 "Actively Revitalizing Pillar Industries": "According to international practices and relevant agreements, some products of pillar industries should be protected as infant industrial products in an appropriate and time-limited manner; At the same time, in exchange for key technologies and equipment, it is allowed to conditionally open some domestic markets. " Decision-making departments combine "exchanging market for technology" with paying attention to protecting infant industries, conditionally open the market and develop pillar industries. The Interim Provisions for Guiding the Direction of Foreign Investment and the Catalogue for Guiding Foreign Investment Industries classify foreign investment projects into four categories: encouraged, permitted, restricted and prohibited, and refine each category in order to support and expand domestic industries and stop low-level repeated introduction.

2. The rapid advancement and in-depth development of the "market for technology" policy.

Influenced by the above policies and Deng Xiaoping's "Southern Speech" in 1992 ~1997, the "market-for-technology" was implemented while adjusting, which has the remarkable characteristics of rapid advancement and in-depth development, mainly in three aspects: First, the number and amount of foreign-invested projects doubled. In 1992, China approved 48,764 foreign direct investment projects, exceeding the total number of foreign direct investment projects approved in 1979~ 199 1 year (42,503), and the contracted foreign investment also exceeded the sum of the previous 13 years. By 1997, China had approved more than 240,000 foreign-funded projects, with an agreed amount of more than US$ 4160 billion, and actually utilized foreign capital of more than US$ 0/510 billion. Second, the investment field has been greatly broadened. Although foreign direct investment covers the primary, secondary and tertiary industries, before 1992, most of the secondary industries were light industries. The government has implemented several different policies to encourage, restrict and prohibit foreign investment, which are relatively strict in actual implementation, and many restrictive projects are actually prohibited. During the period of 1992, the government of China relaxed the restrictions in the investment field. In the past, business, foreign trade, finance, insurance, aviation, lawyers, accountants and so on. As a forbidden area, it is allowed to start pilot investment. The tertiary industry, such as land development, real estate, hotels, restaurants and information consulting, was restricted in the past and gradually liberalized and expanded. Third, the opening of the domestic market has accelerated, and the proportion of domestic sales has been further relaxed. In the past, the domestic sales of foreign-invested enterprises were strictly controlled, and many large-scale production projects that foreign investors wanted to invest in have not been negotiated for many years. The main reason is that they are trapped in domestic sales. The issue of market access is also very prominent. The new policy emphasizes exchanging market for technology, opening the domestic market for high-tech projects, and allowing some projects to focus on domestic sales, even 100%. Of course, this kind of opening-up is conditional, mainly including the following types of projects: (1) High-tech projects can really introduce advanced science and technology, and can fill domestic gaps, many emerging industries and capital-technology intensive projects; (2) Most of the projects that can replace imports belong to the basic raw material industry; (3) Large-scale productive projects and heavy chemical industry.

3. 1997 ~ 2000: moving forward in reflection

Since the end of 1996, the voice of questioning and reflecting on the feasibility and effectiveness of the policy of "market for technology" has become increasingly strong. Its "realistic background is that the entry of large multinational companies has impacted the local market, and the monopoly situation of foreign-funded enterprises has' squeezed out' local enterprises in the market, resulting in the loss of the basic conditions for realizing the technology introduction effect". At that time, many domestic industrial markets were occupied by foreign-funded enterprises. By the end of 1998, Motorola, Ericsson and NEC had more than 90% share in the mobile phone and pager market, and foreign capital had 60% share in the tire market. A similar situation has also appeared in the beverage, washing, cosmetics and machinery markets, but they still rely heavily on foreign technology. This dependence is not only manifested in the massive import of key technologies and equipment by state-owned enterprises and private enterprises, but also in the strong dependence of foreign-funded enterprises on R&D resources in their home countries. The former reflects that the technology spillover effect of foreign direct investment is very limited, while the latter reflects that foreign-funded enterprises strictly control the transfer of advanced technology, both of which show that "market for technology" has not achieved the expected goal.

However, despite the constant doubts, the position of the central government in promoting "market for technology" has not changed. 1In April 1998, the Central Committee and the State Council put forward some opinions on further opening up and improving the level of foreign capital utilization with a more positive attitude, and two of them explicitly mentioned that "market for technology" should be implemented. The first point is that in the basic requirements of making good use of foreign capital, it is proposed to "adhere to the principle of exchanging market for technology, increase the intensity of introducing high-tech industries and advanced and applicable technologies, and promote industrial upgrading." Second, in boldly introducing and actively guiding multinational companies to invest, we should "continue to implement the policy of exchanging markets for technology and further open up the domestic market." Through cooperation with multinational companies, we will introduce advanced and applicable technology, capital, management experience and marketing methods to enter their international production, sales and service networks. From June 5, 2000 to1October 9, 2000, the State Economic and Trade Commission issued "Opinions on Accelerating the Implementation of Technological Innovation Projects and Forming a Technological Innovation System with Enterprises as the Main Body" to local economic and trade systems, stating that "domestic products are encouraged for equipment that can be manufactured by domestic enterprises; For equipment that can be partially manufactured in China, domestic products should also be encouraged for parts that can be manufactured; For equipment that really needs to be imported and has market demand in the future, it is necessary to adopt the method of exchanging technology for market and combining technology with trade, introduce technology at the same time as introducing equipment, and organize digestion, absorption, innovation and localization by industry. Considering that this opinion was formulated in accordance with the Decision of the Central Committee on Several Major Issues in the Reform and Development of State-owned Enterprises, the Decision of the Central Committee and the State Council on Strengthening Technological Innovation, Developing Hi-tech and Realizing Industrialization, and the spirit of the National Economic and Trade Work Conference, it can be inferred that after entering the 265,438+0 century, China still firmly implements the policy of "exchanging market for technology" at the national level. After 200 1 year: the third adjustment and the transition to independent innovation

At the beginning of the 20th century, due to the lack of core technology, the cost of production factors rose, the competition between domestic and foreign markets intensified, the transformation of China's economic development mode became more and more urgent, and the policy of "exchanging market for technology" was also increasingly challenged. On June 365438+1October 3 1 2000, in accordance with WTO rules and commitments, China revised the Law on Foreign-funded Enterprises in People's Republic of China (PRC), the Law on Sino-foreign Joint Ventures, the Law on Sino-foreign Cooperative Ventures and their implementing rules or regulations, and abolished the provisions on foreign exchange balance and "local content" for foreign-funded enterprises. In particular, the amendment to the Law of People's Republic of China (PRC) on Foreign-funded Enterprises changed Article 3 that "the establishment of foreign-funded enterprises must be conducive to the development of China's national economy, adopt advanced technology and equipment, or export all or most of its products" to "the establishment of foreign-funded enterprises must be conducive to the development of China's national economy. The state encourages the establishment of foreign-funded enterprises with export products or advanced technology. " These changes mean that "market for technology" has lost its legal basis, and the original mandatory requirements have become encouraging opinions or agreements between the two sides. In this way, the government has lost the legal basis for requiring foreign-funded enterprises to enter the China market on the premise of technology transfer and export of all or most of their products, and the negotiation space for requesting foreign investors to transfer technology is getting smaller and smaller. Some scholars even think that joining WTO will declare the end of the era of "market for technology".

Under the background of the transformation from "market for technology" to independent innovation, "market for technology" gradually faded out of the country's guiding policy with overall significance. In the central documents after 200 1, the expression of "market for technology" rarely appeared, and only some industry departments and provinces still explicitly proposed to implement this policy, and the scope of implementation was greatly reduced. Therefore, the technological progress in this period presents the phenomenon of "two tracks in parallel", that is, independent innovation and "market for technology" coexist. On the one hand, under the national policy of promoting independent innovation, some industries try to focus on independent innovation; On the other hand, some industries still practice "market for technology" or "market for technology" as the starting point of independent innovation. For example, on June 24th, 2009, the State Council's audit report on the implementation of the central budget and other financial revenues and expenditures in 2008 held that "in terms of business development, relevant policies and measures to guide and support enterprises to enhance their core competitiveness need to be further improved. Taking the automobile industry as an example, most domestic automobile manufacturers cooperate with foreign companies by "market for technology". "