Systematic Analysis and Innovation for Development Policies of Beijing Seed Industry at Transformation Stage

Qing LIU，Fengjun LU*，Guozhi ZHANG，Lijiao XIE

1.College of Economics and Management，China Agricultural University，Beijing 100083，China；2.Beijing Science and Technology Committee，Beijing 100195，China

1 Introduction

Seed industry is a strategic and basic industry that Beijing constructs with Chinese characteristics，as well as an important part of urban modern agriculture.In September 2013，Wang Yang，vice premier，inspected Science and Technology Zone of Beijing Tongzhou International Seed Industry and confirmed development strategic thought of＂seed silicon valley＂，placing high hopes on Beijing seed industry.In February 2014，Xi Jinping，General Secretary，pointed out that Beijing would develop seed，water conservation，and ecological agriculture greatly，transform agricultural development mode practically，as well as improve labor productivity of seed industry and increase intensive development level when he inspected Beijing.Through many years' efforts，Beijing has preliminarily developed to be science and technology innovation center of Chinese seed industry，accumulation center of seed enterprises at home and abroad，transaction and communication center of Chinese seed industry.In recent years our state and Beijing municipality have issued a series of support policies beneficial to seed industry development in succession to develop modern seed industry greatly，in particular that crop seed industry has gone up to be state strategy，Beijing seed industry development has been provided with sound policy environment，and seed policy system has come into being［1－2］.In order to identify the policy development，connected subject and policy effect of Beijing seed industry development efficiently，as well as define interaction relationship among policy input，leverage mechanism and policy output，the article refers to analysis thought of implementation and evaluation mechanism of industry policies［3－5］to construct three-dimensional analysis model of＂policy carrier－policy subject－policy effect＂，acts on the mode to sort out the relevant policies（including plans，lawful regulations and administrative rules）supporting the seed industry development issued by our state and Beijing municipality in the past years，designs systematic analysis framework of the policy effect of Beijing seed industry development，puts for ward main focus of policy innovation of Beijing seed industry at the transformation stage in an attempt to provide thought framework to study seed industry policies and its effect evaluation further.

2 Summary of support policies of Beijing seed industry development

The policy system of Beijing seed industry development is composed of related policies，lawful regulations and administrative rules at national and Beijing municipal levels.Factors such as policy environment，connected subjects and policy effects are necessary for the policy system of the seed industry to play a role，see Fig.1.The policy environment includes policy support field，support point and way，which affect the environment and conditions of formation and influence of seed industry policy；the connect subjects include government administration，enterprise operation and science and research innovation subjects whose behavior have an important influence to the implementation of the policies；the policy effect shall include enterprise，innovation，industry and region effects，corresponding to the development effect of the seed industry at micro，meso and macro levels in separate（for Beijing，the region effect of seed industry policy shall represent the effect of governmental regulations and controls at macro level），which are medium and long term effects of policy implementation of seed industry.The policy carrier has an influence to the policy input through the concerning environmental conditions such as economic，market and law environment，while the policy input will produce corresponding policy output effect through action on policy leverage／regulation and control mechanism.The three-dimensional analysis model of＂policy carrier－policy subject－policy effect＂is applied to summarize the policies at national and Beijing municipal levels that support Beijing seed industry development.

2.1 Continuous improvement of policy system of state seed industry developmentThe policy support system of our seed industry has come into being preliminarily and policy support strength has increased continuously［6］，since Law of Seed was formulated in 2000 to push seed marketization，Measure on Review and Approval of Main Crop Breed，Administrative Measure on Production and Business Permit of Crop Seed（amended in 2004 and 2011），Opinion on Seed Administration System Reform and Market Supervision Acceleration have been issued successively；Document No.1 by Party Central Committee and Opinion on Acceleration and Promotion of Modern Crop Seed Industry Development by the State of Council in 2009 proposes to strengthen agricultural science and technology innovation definitely and develop modern agriculture greatly；＂The12 th Five＂Plan of National Planting Industry Development，＂The12 th Five＂Plan of Agriculture Science and Technology Development and＂The12 th Five＂Plan of National Crop and Seed Development by Ministry of Agriculture point out development direction and focus of policy support of modern seed industry.

Table 1 Summary of main policies and regulations on seed industry at national level

（continued）

On the whole，the national policies，plans and administrative regulations on seed industry development show the characteristics and changes as below：focus on regulation of production and operation of seed industry enterprise，guide marketization of seed industry；transfer to support seed cultivation and biological breeding innovation from focus on seed production，implement a new batch of seed engineering，encourage to cultivate species with proprietary intellectual property rights；accelerates to construct commercial breeding mode，and cultivate breeding integration seed enterprise.

2.2 Beijing leads formulation of policies of seed industry developmentIn order to carry out and implement thoroughly policy spirits such as Law of Seed of the People's Republic of China，Opinions on Acceleration of Modern Crop Seed Industry Development by the State of Council（Guo Fa No.20118），Document No.1 in 2012，Beijing formulate and implement in succession local rules such as Beijing Municipal Measure on Implementation of Law of Seed of the People's Republic of China，Beijing Municipal Regulation on Crop Seed，implement Action Plan of＂Science and Technology Beijing＂to take seed industry as key supporting industry，issue Opinion on Acceleration of Mode Transfer of Beijing Seed Industry Development and Development Plan of Beijing Seed Industry（2010－2015）as well as Opinion on Promotion of Modern Seed Industry Development by Beijing Municipal Government.

Table 2 Summary of main policies and regulations on seed industry at Beijing municipal level

The policies，plans and opinions on seed industry development by Beijing municipal government show the following characteristics：implement seed engineering firstly，encourage new species selection and propagation，development and marketization；formulate seed industry development plans and give opinions，put forward construction target of＂capital of seed industry＂，lead national seed industry development；innovates system and mechanism，push construction of science and technology town of modern agriculture；as well as establish new seed industry system that integrates＂good seed creation，achievement trusteeship，technology transaction，good seed industrialization＂as a whole.With outstanding leadership and drive，the abovementioned policies has very important significance to improve leading position of Beijing seed industry，explore system and mechanism innovation firstly and establish new seed industry system with Beijing characteristics.

3 Systematic analysis on development policy of Beijing seed industry

3.1 Mechanism of action of development policy of Beijing seed industryThe development polices of seed industry include industry，structure，organization，science and technology，investment，and foreign trade policies［7－8］，based on difference in input contents，the input of seed industry policies can also be divided into fund，human resource，infrastructure inputs，that is＂manpower，finance and property＂.The policy output is also can be regarded as action effects of seed industry policies，including action effects at micro，macro and meso levels such as subject organization optimization，development mode transfer and innovation of mechanism.Regulatory mechanism refers to the process that policy administration subject causes policy optimization of seed industry through support field，point and way of the seed industry policy，such process has an influence to action relationship between seed industry formulation and policy utilization subject.Besides，the regulatory action，way and measures of the government import into market vertically through regulatory mechanism and form contact and function in conformity with development target of seed industry inside the market mechanism，thus coordinating with economic contacts among various industries inside the seed industry as well as between seed and agriculture industries through market mechanism［7］.The system action process of seed industry policy means that，under some economic，policy and law environment law background，the policy administration subject causes change in policy connected subject behavior by changing policy input and giving play to policy regulatory mechanism［3－5］，thus resulting in policy output change process，such change cause change in enterprise，innovation，industry and region effects of Beijing seed industry development，thus acting on orientation target of Beijing seed industry development and producing feedback effect to accelerate construction of new seed industry system，improve innovation competition and leading and driving capability of Beijing seed industry，which has an influence to creation of＂Capital of Seed Industry＂and orientation realization of construction of science and technology center for state seed industry and communication and service center for world seed industry（referred to as＂two centers＂in brief），as shown in Fig.2.For Beijing，the policy administration subjects mainly refers to administrative departments related with the seed industry involved in agriculture committee，finance bureau，NDRC and State Science and Technology that impose on the implementation process of seed industry policies through change the target requirements of the seed industry development，on the implementation targets of seed industry policies through change in policy demands，and on the implementation behavior of the seed industry polices through change in field，key point and mode of the seed industry policies.The demands for the seed industry policies can be divided into seed industry research and development，administration and service policy demands［5］.According to way of contact between macro－control and market regulation，during promotion process of seed industry development，Beijing municipal government shall choose indirect regulation mode that gives play through market mechanism［7］to change policy input and output process.

3.2 Effect analysis of development policy of Beijing seed industryAccording to study on framework of system analysis of policy effect of seed industry，since 2010 Beijing municipality have issued successively Opinion on Acceleration of Development Mode Transfer of Beijing Seed Industry，Development Plan on Beijing Seed Industry（2010－2015），and Opinion on Promotion of Modern Seed Industry Development by People's Government of Beijing Municipality，put forward strategic target of construction of＂Capital of Seed Industry＂，constructed state modern agricultural science and technology city along with science and technology department and taken development of seed industry as one of important tasks of constructing state modern agricultural science and technology city with great advantages of science and technology innovation，research and development transfer，market promotion and headquarter gathering of seed industry，and seed industry development has shown sound enterprise，innovation，industry and region effects.

3.2.1 Enterprise effect.Beijing is an area where seed industry enterprises are mostly concentrated，and its position on the market at home and abroad is constantly consolidated and improved，showing obvious HQ economic characteristics.By the end of 2013，among 1252 enterprises engaged in crop seed industry in Beijing，there had been 268 ones holding certificate，7 breeding integration enterprises by ministry of agriculture，3 enterprises ranking top 10 star seed industry enterprises all over China.4 out of top 10 enterprises are headquartered in Beijing，and 8 out of world top 10multi-national companies set up their R＆D or branch institutes in Beijing，and 20 large seed enterprises set up offices and branches in Beijing.A batch of livestock and seed leading enterprises with reputation all over the world such as Yukou Poultry，Shunxin Agriculture，Deqingyuan，Dabeinong and Bainianliyuan are growing up，Chinese famous aquatic products seed industry such as Xunlong Seed Industry has come into being，as a result，aggregation effect of seed enterprise is improving continuously.

3.2.2 Innovation effect.Beijing is an area where science and technology resources of national seed industry are mostly concentrated and science and research，teaching and breeding organization，enterprises and talents with the most strength in China gather together.There are 25 agricultural science and research teaching units，more than 80 research and development institutes of seed industry，11 key state agriculture labs，and 14 agricultural state engineering and technology research centers.There is1 long-term storage and 14 medium-term storage of germplasm resources to save total401800 crop germplasm resources such as wheat，corn，bean，paddy，fruit and vegetable，and flower，which ranks the second place in the world.The agricultural technology promotion institutes have tremendous strengths，123 agricultural technology promotion institutes at both county and municipal levels in Beijing，Chinaseed.net，www.seed.gov.cn，Beijing seed org.have been established to become important information platforms of seed industry information.

3.2.3 Industry effect.Since opinion on Beijing modern deed industry development and＂the 12th Five＂Plan are issued，Beijing municipality have established seed industry development unit composed of 19 units at municipal level to push the implementation of opinions.Every year more than RMB0.1 billion of funds are used to support seed industry development，and seed production and processing mechanics necessary for seed enterprise development are incorporated into overall range of policy support，which accelerates seed industry development and realizes continuous increase in output value，in 2013，sale amount of Beijing seed industry was up to RMB 10.288 billion，and the sale amounts of crop，livestock，aquatic product and fruit and flower seed industry were up to RMB 4.287 billion，RMB2.4 billion，RMB 0.251 billion，and RMB 3.35 billion，occupying about10%of the whole China，and importing and exporting amount of crop seeds took account for above 35%of the whole China.

3.2.4 Region effect.There are 4 large crop seed transaction markets in Beijing.Depending on state modern agriculture science and technology city，national seed science and technology achievement trusteeship and transaction platform is being constructed，species right traction，science and technology trusteeship and seed transaction market is being perfected，and position as national seed communication center is being improved.2014 World Seed Conference is held successfully，which is helpful to improve transaction market conditions of Beijing seed industry and improve Beijing's influence on world seed industry market.As improved varieties creation and seed transaction center of state modern agriculture science and technology city and Tongzhou international seed park is constructed，a transaction center and communication platform of internal seed industry leading national seed industry are forming in Beijing.

4 Policy innovation of Beijing seed industry development at transformation period

Combined action between state and Beijing municipal seed industry policy system accelerates Beijing seed industry to enter into transformation and development stage［9］，creating conditions for transforming development mode of Beijing seed industry，cultivating enterprise innovation subject and commercial breeding model.In order to create＂policy highland＂of national seed industry development constantly，focus to construct state＂seed silicon valley＂，as well as to combine with construction of Tongzhou park of state modern agriculture science and technology city and Zhongguancun national independent innovation demonstration park，it is also necessary for Beijing seed industry to integrate seed industry policies and financial support input to create research and development and public service platform with high flux，construct seed industry transaction and information service support system，and improve breeding integration enterprise greatly［10］.The leadership and coordination action of Beijing municipality's＂promotion of coordination group of seed industry development＂is given full play，policy coordination among multiple departments are well done，the support policies at both national and Beijing municipal levels are actively docked，thus driving seed industry to develop towards＂high end，efficiency，radiation and integration＂.

4.1 Improving input intensity of seed industry policies and financial supportFocus on policy and department interaction，increase fund investment，actively strive for a new round of state seed engineering project fund expand investment and finance channels further.Integrate projects and funds of departments such as finance，development and reform，science and technology，agriculture，water，garden greening，finance positively，incorporate seed production within city into policy-oriented agricultural insurance coverage，increase seed industry's capability to withstand natural risks.Encourage and guide related financial institutes to accelerate credit support strength of＂breeding integration＂seed enterprises，and grant medium and long term loan interest to the enterprises in conformity with the conditions.Give full play to agricultural investment and finance platform at municipal level，dock modern seed industry development fund，for seed enterprise with listing potential，supporting their listing and financing and is su-ance of securities；for seed enterprises up to certain scale，support them to expand scale and improve level；for growth seed enterprises，support them to accelerate structure adjustment and technology structure，as well as improve brand image.

4.2 Creating seed research and development and public service platform with high influxCreate several basic research and development platforms of seed at national level，face to longterm and stable development of state agriculture and national food security guarantee，combine with research and development advantages of seed industry for Beijing municipal science and research teaching units，select importing crop，vegetable，poultry and aquatic species，establish research and development and public service platform of Beijing seed industry species supported by government step by step；with high-end creation of seed industry as target，and with Beijing state modern agricultural science and technology city as bond，dock finance service center and networking information network service center，construct high-end creation platform integrating new species research and development，high-level seed production technology，seed production equipment research，development and production as a whole，actively push seed industry research and development and high-end creation.

4.3 Constructing seed industry transaction and information service support systemUnder the guidance and support of government，construct seed transaction institute and variety right transaction center，establish fair and efficient science and research achievement transaction mechanism，provide just，fair and highly efficient transaction environment for the enterprises to develop variety transaction，become seed industry transaction platform radiating all over the country gradually.Encourage to develop modern service industry of seed industry，construct science and technology trusteeship platform of seed industry，extend and expand diversified service functions of achievement administration，property right protection，information issuance，exhibition and introduction，transfer，achievement consulting and service after sale of science and technology achievements of Beijing seed industry.Construct high-end service platform of seed industry science and technology and finance，provide one-stop and individual finance service for differentiated seed enterprises，guide finance to combine with seed industry science and technology，lead related finance resources gather in seed industry，improve science and technology finance and information service support system of seed industry.

4.4 Cultivating breeding integration seed enterprises greatly

Carry out and implement finance，banking and taxation preferential policies supporting seed industry enterprises by sate and Beijing municipality，support the large enterprises（especially agricultural enterprises）in Beijing to undertake seed industry research and development，production and operation by way of acquisition and equity participation；promote germplasm resources and breeding talents to transfer towards large seed enterprises through science and technology system reform，strengthen science and technology innovation ability of breeding integration enterprises；support strategic alliance of seed industry technology and innovation greatly，encourage breeding integration enterprises to develop efficient university-industry collaboration with science and research teaching institutes，construct seed industry alliance to become an important bridge and bond of seed enterprises development；implement development strategy of＂walking out＂by seed enterprises，accelerate to establish commercial breeding mechanism with enterprise as subject，encourage breeding science and research institutes and staffs to enter into enterprises or cooperate with them，explore talent policy that policies promote university industry collaboration［11］，establish two different evaluation mechanism of science and research achievement basic research and variety commercial development of the seed industry.

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