Research on the reform ideas and supporting policies of the comprehensive pilot project of tourism industry reform and development in Baoshan and Tengchong

The comprehensive reform of Tengchong tourism is guided by the Scientific Outlook on Development, based on the county economy, with the development of the tourism industry as the main line, with the goal of building an internationally renowned tourist destination, with the focus on creating a new growth pole for Yunnan tourism, with the exploration and promotion of my country's demonstration experience in comprehensive tourism reform, with bottlenecks such as land, transportation, and financing as the breakthrough point, with comprehensive reforms including land policies, management system reform, investment and financing strategies as the main content, and with comprehensive reform as the driving force. It is an innovative, exploratory, directional, strategic, systematic, tough, and nationally demonstrative pilot project for the development of the local tourism industry.

I. Background, significance, basic conditions, main tasks and characteristics of the comprehensive pilot reform

The proposal of the comprehensive pilot project for the reform and development of Tengchong's tourism industry has a profound contemporary background and important practical significance. Tengchong's tourism is in the golden period of development, the transition period and the critical period, and is on the eve of achieving leapfrog development. It is in urgent need of comprehensive reform to help it achieve a key leap. Tengchong currently has the basic conditions for implementing the pilot project of comprehensive tourism reform, but it also faces some problems, which need to be solved by clarifying the tasks of reform. There is no precedent for the comprehensive reform of Tengchong's tourism. It is a typical, comprehensive, wide-ranging and systematic project that concerns the overall situation. It is a long-term project that requires us to continuously explore, emancipate our minds, reform and innovate, and persevere to complete.

1. Background and significance of comprehensive reform of Tengchong tourism

Tengchong's implementation of the comprehensive reform pilot of tourism has a profound background of the times. It is based on the height of historical development. In the global economic integration, China's cooperation with Southeast Asia and South Asia is becoming increasingly important; in the general situation of a new round of emancipation of mind, reform and innovation after the successful convening of the 17th National Congress; in the context of the country's promotion of comprehensive reform pilots such as two-type society, urban-rural coordination, and Binhai New Area, comprehensive reform has become a feature of the times; in the 30 years of reform and opening up, my country's tourism industry has made great achievements, and tourism development has entered a new stage of comprehensive transformation and upgrading, which requires the comprehensive function of tourism to fully play a leading role; in the context of the county economic reform in my country has been launched nationwide, and strengthening counties and expanding powers has become a major trend; in the critical period of realizing the second entrepreneurship of Yunnan tourism and urgently needing to create a new growth pole; on the eve of the transformation and upgrading and extraordinary development of Tengchong tourism, the Yunnan Provincial Party Committee and the Provincial Government began their important strategic deployment. Tengchong's comprehensive tourism reform actively responds to the country's call for emancipation of mind, reform and innovation, conforms to the great tide of the country's comprehensive reform, and is a concrete practice of the scientific outlook on development. The comprehensive pilot project for the reform and development of Tengchong's tourism industry will not only accelerate the leapfrog development of Tengchong and Baoshan's tourism industry, but also have extremely important practical significance for the development of tourism in Yunnan Province and the whole country.

First, it is an urgent need to accelerate the leapfrog and extraordinary development of Tengchong's tourism industry, cultivate and expand Baoshan's tourism core area, and build an international tourist destination.

Second, it is an urgent need for Yunnan Province to promote secondary tourism entrepreneurship, create a new tourism growth pole, build a new starting point for tourism development and achieve international development.

Third, there is an urgent need for the country to explore the transformation and upgrading of the tourism industry, reform and innovation, and to innovate the county economic development model with tourism as the main line.

Fourth, there is an urgent need to innovate my country's border tourism development model and use tourism as a guide to promote regional cooperation between my country and South Asia and build a bridgehead.

2. Stage judgment of Tengchong tourism development and the basis and conditions for comprehensive reform

Over the past 20 years, under the correct leadership of the county party committee and government, with the joint efforts of the county's tourism industry and the strong support and cooperation of relevant departments, Tengchong tourism has gone through three stages of development: starting, slow growth and rapid rise. With the opportunity of the comprehensive tourism pilot reform, Tengchong tourism has entered a new period of leapfrog development. The pillar status of tourism in regional economic development has become more clear, and it has become the core industry for the overall development of the regional economy. After experiencing the starting stage of 1988-1989, the slow growth stage of 1989-1999 and the rapid rise of 1999-2007, Tengchong tourism has now entered a new stage of leapfrog development. After years of hard work and practice, Tengchong has made full preparations for the comprehensive tourism reform pilot in terms of policy and organizational guarantees, tourism resources, location advantages, tourism development trends, supporting services, key project support and development opportunities.

3. Main Problems in Current Development

At the current new stage of leapfrog development, the main constraint of Tengchong is the lack of management mode, policy system and development mechanism that are compatible with the rapid and healthy development of tourism. It is mainly reflected in the six aspects of large pilot and small management, large development and small products, large industry and small policy, large system and small planning, large market and small capital, and large international prospects and small opening of marginalization.

4. Basic nature and main features of the reform

The comprehensive reform of Tengchong's tourism industry has no precedent in the country and is innovative and exploratory. The comprehensive reform involves multiple subjects and comprehensive objects, so it is comprehensive and global, and correspondingly systematic and complex. The reform involves many major strategic and directional decisions and faces many bottleneck problems, so the reform is strategic, directional and tough. The reform proposal combines many favorable conditions and needs to rely on support from multiple resources, so it is integrated and dependent. Although the reform is concentrated in one county, Tengchong, it is a demonstration to the whole country, so it is typical and exemplary. The comprehensive, systematic and complex characteristics of the reform, coupled with the fact that the reform is a basic reform involving the development of the tourism industry, make the comprehensive reform of Tengchong's tourism industry a long-term project.

II. Comprehensive Pilot Reform Objectives and Overall Approach

Based on the competitive advantages of Tengchong's tourism development, guided by the Scientific Outlook on Development, and focusing on the goal of building an internationally renowned and first-class Chinese complex tourist destination with health, leisure and vacation as its core, with innovative tourism development methods as the starting point, institutional reform as the focus, coordinated urban and rural development as the entry point, and tourism product system construction as the support point, we will implement the five major strategies of government-led, high-quality cultivation, project-driven, market development and science and technology-driven tourism, comprehensively improve the innovation ability, development ability and market competitiveness of Tengchong's tourism industry, and give play to the demonstration role of the comprehensive reform pilot project for tourism industry development.

1. Basic positioning

Make the comprehensive tourism pilot reform an important breakthrough for county-level reform and innovation, a test base for the reform of major national tourism industry policies, an important support for the realization of Yunnan's tourism secondary entrepreneurial mission, an advanced model for coordinated urban and rural development through tourism, a pioneering model for promoting border opening up through tourism economy, and a demonstration window for promoting the construction of a harmonious society through harmonious tourism. Strive to build Tengchong into an internationally renowned and domestically first-class complex tourist destination with health and leisure vacation as the core within 10-15 years, an important growth pole and "leader" of the western Yunnan tourist area, Yunnan's most distinctive emerging tourist destination, China's most promising tourism county, a cross-border tourism distribution center facing Southeast Asia and South Asia, and a well-known health tourism resort at home and abroad.

2. Development Goals

We will strive to build Tengchong into a complex, international tourist destination with health, leisure and vacation as its core, cultivate the tourism industry into the first ecological pillar industry that will develop border areas and enrich people, and build Tengchong into a national-level comprehensive experimental zone for tourism reform and development that is livable, tourist-friendly and business-friendly with multiple demonstration effects.

(III) Reform objectives

The "three-step" target system of this comprehensive pilot reform of the tourism industry is as follows: the first step is to rely on the tourism pilot to become a real supporting county for the "second entrepreneurship" of Yunnan tourism; the second step is to rely on the tourism pilot to achieve a demonstration county for breakthroughs in county economic reforms; the third step is to rely on the tourism pilot and supporting policies to achieve the "Tengchong model" of leapfrog development of the tourism industry.

(IV) Reform ideas and paths

Guided by Deng Xiaoping Theory and the important thought of "Three Represents", we will fully implement the spirit of the 17th National Congress of the Communist Party of China, thoroughly implement the Scientific Outlook on Development, adhere to unified planning and highlight characteristics, adhere to coordinated urban and rural development and integrated development, adhere to reform and opening up and bold innovation, adhere to protection as the main focus and scientific development, and adhere to government guidance and market operation. We will further coordinate the five major relationships of deepening development and reform and innovation, local breakthroughs and overall development, pilot reforms and demonstration effects, government dominance and market promotion, and short-term results and long-term sustainable development, and achieve new breakthroughs in the tourism development system and mechanism, operation model, protection and development, and coordinated urban and rural development.

Optimize the reform path, place the comprehensive pilot reform of Tengchong tourism in the overall system of national economic and social development, focus on the difficulties of reform, and have various departments find points of convergence, and jointly promote permeating reform; select representative demonstration projects, study the breakthroughs that need to be reformed in various projects, and focus on breakthroughs to promote comprehensive reform; combine with related industries, urban construction and new rural construction, promote guiding reform with tourism as the main driver, and make tourism a guiding industry that dominates the development of county economy; build various carriers that allow community residents to participate in and benefit from the development of tourism, and promote national reform through social participation.

(V) Overall framework

With the sustainable and healthy development of the tourism industry as the main line, focusing on the overall goal of Tengchong's tourism development with the construction of a healthy vacation and leisure tourism destination, support for secondary entrepreneurship, and breakthroughs in county reform pilot projects as the three core elements, targeting the five major bottlenecks that restrict the development of the tourism industry, using the reform of the tourism system and mechanism and innovative ideas and methods as working means, we will focus on solving the main problems and key contradictions that currently restrict the development of Tengchong's tourism. With the six major work priorities of spatial layout optimization, characteristic town construction, enrichment of product system, corporate brand building, improvement of public services, and development environment governance as the starting point, through infiltration promotion and comprehensive reform, we will vigorously promote the development of Tengchong's tourism destination, create the Tengchong model of county tourism economic breakthroughs, and shape the Tengchong spirit with innovation and reform as the main feature.

III. Supporting policies and measures for comprehensive pilot reforms

Based on the existing advantages, we will focus on solving the main problems and key contradictions that currently restrict Tengchong's tourism from achieving leapfrog development. On the basis of making full use of existing policies, we will strive to make major breakthroughs in eight areas, including financial reform, fiscal and taxation policies, land use models and policies, management systems and industrial policies, border trade opening policies and international cooperation, investment and development supporting policies, talent system construction, characteristic tourism products and new tourism formats.

1. Explore major breakthroughs in financial reform and opening up

Seek breakthroughs in seven aspects: enhance the investment and development function of the existing financial system, establish Tengchong Tourism Comprehensive Reform Investment Company, and gradually establish a professional development bank when conditions permit; improve the grassroots agricultural banking system, gradually build village banks, promote the competition of the Postal Savings Bank to be built, and improve the level of rural financial services; continue to encourage and support existing private financial activities, let farmers develop rural financial mutual aid societies, and establish a new tourism and cultural development support fund when conditions permit; strengthen project financing, introduce strategic partners to create a high-end financing platform for Tengchong tourism; directly raise funds from the capital market in various forms such as direct listing and equity swaps; make full use of the leverage effect and mobilize all positive factors for financing; promote the reform of the border foreign exchange management system and empower cross-border settlement business.

2. Implement more favorable fiscal and taxation policies

At present, Tengchong needs to build supporting infrastructure and public service systems, which are arduous tasks. It should increase financial investment and try out preferential tax policies. First, establish the "Yunnan Tourism Development Reform Comprehensive Pilot Special Fund", and the provincial finance will provide Tengchong with special transfer payment subsidies; second, increase the provincial financial support for the county economy and establish a corresponding financial incentive mechanism; third, apply for national service industry guidance funds, and the provincial finance will provide matching funds; fourth, in accordance with the policy standards of the special economic zone and the requirements of the western development, reduce and exempt various taxes during the comprehensive reform pilot period; fifth, implement the tax refund policy for overseas tourists' consumption and the tax reduction and exemption policy for air rights opening; sixth, establish a tourism resource compensation mechanism.

3. Significant breakthroughs have been made in land use model and policy innovation

In order to break through the land bottleneck in the comprehensive reform and development of Tengchong tourism, we should treat the land resources in time and space according to the needs of tourism development, and build a "three-in-one" land resource utilization model in terms of time, space and policy: in the near term, we should mainly focus on the implementation needs of major tourism projects, tap the potential of existing construction land indicators, revitalize the stock, explore the way of "one land for multiple uses" for tourism, cooperate with the reform of the tourism management system, strive for more land indicators, and enhance the right of independent land approval; in the medium term, we should mainly focus on the infrastructure and supporting environment needs of tourism industry development, coordinate urban and rural areas, intensively optimize the use of land for tourism industry development, strengthen land consolidation efforts, establish a tourism and land linkage mechanism, and try to make breakthroughs in cross-border land use; in the long term, we should mainly focus on the development needs of counties dominated by tourism economy, scientifically plan and coordinate, build a transfer system, establish a regional land system that adapts to the comprehensive reform of tourism, and provide land guarantee for the long-term development of tourism economy.

(IV) Major breakthroughs in management system reform and industrial support policies

Focusing on the enhancement of the county's autonomous development rights and the optimization of the tourism development space, we will start from the project list, gradually move towards expanding the power of the county, and finally abolish the county to set up a city, promote the reform of the county administrative system, and provide the support of the county administrative system for the accelerated development of Tengchong's tourism industry. At the same time, Tengchong's construction of an international tourism and leisure resort base requires the opening and development of related service industries. In accordance with international practices and the general trend of opening up the tourism industry, we must implement more open policies for tourism-related service industries, such as granting certain rights to host international cultural, educational, and sports industries; implementing more flexible golf tourism industry policies; moderately developing tourism public welfare gambling industry policies and more flexible tourism project approval policies.

5. Policies for building an international tourist port area

Continue to build the South Asian transnational channel and gradually incorporate it into the national strategy; promote the liberalization of investment and trade in Tengchong's tourism industry, and promote the flow of people, logistics and capital; explore the establishment of a pattern to promote the integration of border trade and tourism economy; implement the "going out" strategy, introduce major foreign travel agencies and famous brand hotels into the Tengchong tourism market, and actively promote international tourism cooperation; create an international tourism environment and provide supporting related services; organize global media cooperation to publicize and enhance Tengchong's tourism image.

(VI) Cultivate a human resources team that is compatible with the construction of the tourism pilot zone

Talent is the foundation of the construction of Tengchong Tourism Reform and Development Comprehensive Experimental Zone. Further improve tourism human resource planning and create a good employment environment; implement high-level talent introduction projects and increase the introduction of outstanding tourism talents; invite famous tourism universities to open branches in Tengchong, strengthen tourism vocational education and send out key talents for training, etc., to form a talent resource education and training system with Tengchong characteristics; establish a training center for jade processing, identification and marketing with Tengchong characteristics.

7. Policies for the development of tourism products, new products and new business formats

At present, the production and design of Tengchong's tourism products are backward, and the regional cultural characteristics are not obvious. We should further explore the unique ethnic resources and develop the unique dwellings in the territory; do a good job in improving the sightseeing tourism of characteristic villages and towns, characteristic agriculture, and characteristic customs; introduce a large number of South Asian and Southeast Asian performing arts; implement brand strategies, increase policy support for new products and new formats; and establish a tourism collective learning and industrial innovation mechanism.

IV. Promoting the work system of comprehensive pilot reform

The comprehensive reform of tourism in Baoshan and Tengchong is a three-dimensional and comprehensive reform that needs to be promoted at multiple levels. Tengchong County alone cannot complete it independently. When Tengchong County implements the reform plan, it needs the strong support of Baoshan City, Yunnan Province and relevant national ministries and commissions, and on the basis of extensive community participation, it needs to enhance the enthusiasm and operational capabilities of tourism enterprises. To this end, it is necessary to study a set of work systems to mobilize all forces to promote the comprehensive reform of tourism and realize the infiltration, combined and step-by-step reform strategy.

1. Tengchong County: Executing entity, strengthening implementation capacity building

Tengchong County is the main implementer of the comprehensive pilot plan for the reform and development of the tourism industry. It will further strengthen its main position, strive for full authorization from the higher-level government, and improve its execution, operation and breakthrough capabilities, especially to find the specific work grasps: first, grasp planning to achieve scientific development; second, grasp projects to implement tasks; third, grasp land use rights to find a space for projects; fourth, grasp infrastructure to optimize the development environment; fifth, grasp product construction to enhance development potential; sixth, grasp industry cultivation to increase comprehensive benefits; seventh, grasp internal management to achieve stable operation of the industry; eighth, grasp protection to achieve sustainable development; ninth, grasp urban and rural coordination to enhance the industry's driving capacity; tenth, grasp financial reform to expand development funds; eleventh, grasp preferential policies to accelerate enterprise growth; twelfth, grasp investment promotion and cultivate market entities.

(II) Baoshan City: Integrate entities and strengthen resource coordination capabilities

Baoshan City is the pilot resource coordinator and integrator, focusing on compiling supporting implementation plans of relevant departments, formulating corresponding assessment standards and methods, strengthening implementation and supervision, and improving overall coordination, service and coordination capabilities. It is mainly reflected in the following eight coordinations: first, establishing a working leading group to coordinate pilot work; second, coordinating destination construction to enhance the market appeal of the pilot; third, coordinating image publicity to expand the pilot's tourism publicity and promotion carriers; fourth, coordinating regional cooperation to build a large pattern of pilot development; fifth, coordinating industry management to improve the government's service capabilities; sixth, coordinating preferential policies to enhance the investment capacity of the pilot; seventh, coordinating human resources to provide intellectual support for the pilot; eighth, coordinating major issue decisions to improve problem identification capabilities.

3. Yunnan Province: Decision-making body, strengthening leading capacity building

Yunnan Province is the leader of Tengchong's comprehensive tourism reform, the decision-making body, and the key to the success of the reform. It focuses on optimizing the development environment, providing a development platform, creating development space, and placing the pilot work at the height of creating a new growth pole and a new development starting point for the province. It is mainly reflected in: first, building an operating mechanism to lead the pilot work; second, issuing relevant documents to promote the operation of the pilot; third, formulating preferential policies to ensure the priority development of the pilot; fourth, supporting infrastructure to solve the development bottleneck of the pilot; fifth, supporting the expansion of power in the county and enhancing the space for the pilot government to act.

4. State: Promote the main body and strengthen support

Yunnan Province is a supporter of the comprehensive reform of Tengchong tourism and is the main body of promotion. Based on the establishment of working contact points by the National Tourism Administration, through provincial and ministerial cooperation, we actively communicate and coordinate with the Development and Reform, Land and Resources, Construction and other departments to strive for more national support. First, help research and explore the direction, ideas and policy measures of Tengchong's reform, and increase intellectual support; second, solve the land use indicator problem in a package; third, support some demonstration projects; fourth, jointly study and strive for major reform measures; fifth, support the opening of duty-free shops; sixth, effectively utilize the policy advantages of environment, employment, poverty alleviation, etc.; seventh, strive for the policy advantages of pilot counties; eighth, study and summarize the pilot experience; ninth, encourage large domestic and foreign tourism companies to invest or establish branches in pilot counties.

(V) Communities and enterprises: Beneficiaries, strengthening operational capacity building

First, allow local small businesses and village collectives to participate in development under a unified plan; second, explore the possibility of farmers' land use rights becoming shares; third, encourage communities to participate in the development of farmhouses, tourist-themed dwellings, and agricultural experience tourism; fourth, explore the possibility and feasibility of packaging Tengchong tourism for listing; fifth, guide cross-industry investment in the tourism industry; sixth, cultivate a "leading + network" type of tourism enterprise cluster; seventh, enhance the operational capabilities of tourism enterprises; and eighth, create a large environment for community participation in tourism and build an atmosphere for tourism development.