高速铁路产业发展政策研究
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摘要
自1964年日本东海道新干线开通运营以来，经过40余年发展，世界高速铁路形成了以日本新干线N700系与E5系、法国TGV和德国ICE为代表的列车技术系统。我国建设高速铁路方案于1990年进入决策层视野，到90年代末付诸实施。跨入21世纪，随着铁路跨越式发展战略的实施，以及2004年国家《中长期铁路网规划》的颁布，我国高速铁路在短短的几年间取得了迅猛发展。2008年8月1日京津城际列车通车运营，标志着中国铁路正式迈入“高铁时代”。截止到2012年底，中国高铁客运专线达到9356公里，超过了世界所有其它国家高铁运营里程的总和，居世界第一位。中国CRH高速铁路技术谱系以崭新的面貌，汇入了世界高铁技术体系之列。
高铁发展初期，人们普遍认为高铁发展只意味着铁路行业内部高等级路网的铺设、高速列车装备的使用。随着引进、消化吸引再创新技术路径取得重大成就，以及高速铁路网建设给我国区域经济发展、城市化进程加快、产业结构升级带来的革命性影响，高速铁路成为国家战略型新兴产业。在2010年底召开的第七届世界高速铁路大会上，国务院领导明确宣布：中国政府已将高速铁路作为优先发展的战略性新兴产业。2011年《国务院关于加快培育和发展战略性新兴产业的决定》提出“十二五”加快发展高端装备制造产业的重点之一就是依托客运专线和城市轨道交通等重点工程建设，大力发展轨道交通装备。2012年底党的十八大把高速铁路发展作为创新型国家建设重大成就之一给予充分肯定，高速铁路成为宇宙空间技术、海洋探测技术之外地面运输高新技术的代表。
尽管高铁发展给我国经济社会生活带来深刻变化，但高速铁路发展之路并非一帆风顺。高铁是否需要发展、如何发展等论争贯穿在高铁发展全过程。甬温线动车组安全事故，以及融资债务、安全运营、施工质量、管理失控和领导腐败等问题的暴露，使高铁产业发展面临新的压力。如何加强高速铁路技术设备的标准化管理，进一步提升高速铁路设备的技术成熟度和运营管理水平，如何处理好投入与产出、速度与安全、质量与工期、效益与效率、标准和需求等一系列问题，对高铁产业发展提出了新挑战。2013年初《国务院机构改革和职能转变方案》出台，铁路实行政企分开总体性改革。这一重大体制改革对已建高铁资产的运营管理、高铁建设长远发展将产生重大影响。在国家已有产业政策保持稳定不变的情况下，高铁产业如何保持应有地位和获得更大发展、如何解决好高铁产业发展的动力机制、如何解决高铁建设投资资金来源、如何解决高速铁路发展安全监管、如何处理好多种交通运输方式的组合效率、如何应对来自国际高铁技术的激烈竞争等问题，摆在了高铁产业发展面前。历史与现实相结合、理论与实践相适应，有针对性回答并解决上述不同层面问题，是本论文研究的立足点和落脚点。
论文第一大部分，系统梳理高铁产业的发展历程、发展现状和发展定位，重点分析高铁产业发展对我国社会经济生活发展的贡献作用，并从管理体制、运价规制、运输资源配置及铁路运输企业经营管理状况等角度入手，剖析了影响高铁发展的有利和不利因素，进而阐明高铁产业发展的政策需求。
这部分内容创新点是把高铁产业视为完整系统，以整个产业发展为立足点，研究高铁产业内各子系统、产业核心层与外部产业链系统的关系，使产业发展研究视野更开阔、针对性更强。高铁产业以高速动车组运营和服务为核心，包括技术研发、客运专线基础设施建设、机车车辆装备制造、牵引供电及现代通信和信号技术、产品设计和服务等诸多环节的战略性产业。置于国民经济大系统中考察，高铁产业可分成三个组成部分。一是高铁技术层。二是高铁产业核心层，可分为技术研发、机车车辆装备制造、工务工程建设、高铁运营和运输管理等四个子系统。三是高铁产业涉及的上下游产业链条层。论文着重以高铁产业核心层为研究对象，通过传统体制和政企分开体制下高铁产业发展比较，分析了高铁技术引进研发和创新、技术链向产业链转化、产业内各子系统相互影响和制约协调推进的关系，以及高铁产业系统对其它国民经济产业系统、区域经济发展的正相关效应，明确了高铁产业的发展定位，揭示了高铁产业发展政策研究的重要性和迫切性。
论文第二大部分，主要围绕政策制定过程、政策重点内容及政策实施手段，分别在高铁产业发展的管制体制、运价及安全规制、技术发展、投融资改革以及高速铁路区域布局等领域，提出了相应的政策建议。
在管制体制方面，我国高铁产业管制目标是重新调整政府与企业、企业与市场的关系，使政府规制能更迅速灵活地适应经济社会形势变化。从管制机构和管制主体来说，当前重点抓好两大任务：一是统一管制机构，坚持一体化管理，铁路产业、高铁产业须由一个隶属人大或国务院下分工明确、职责清晰、步调一致、独立运作的统一管制机构来完成，对路网建设规划、高铁价格、安全监控、产品质量和服务标准、市场准入退出等领域实施监管。二是依法合理管制，坚持立法先行原则。管制标准、内涵、手段、方法和实施细则必须有明确具体的立法规范，并在切实保障企业独立的市场主体地位、有利于企业合法经营的前提下实施合理管制。从管制对象即高铁产业企业来说，深化市场化改革，建立现代企业制度，完善公司制法人治理结构。在高铁产业发展的四个子系统中，其它三个子系统市场化水平较高，企业市场主体地位基本确立。唯独作为高铁产业经营管理子系统的铁路企业，尚未完全确立现代企业制度，市场经营还受各种主客观因素的制约。因此，高铁产业发展当前最迫切的任务是，通过高速铁路营运部门的管理体制改革，确立运营企业的市场主体地位，使高铁产业现有速度优势、技术优势、质量优势和服务优势得到更充分展示。铁路企业市场化改革，除《国务院机构改革和职能转变方案》已经确定的基本方向主要措施外，需要从两个方面取得重点突破，一是现有客运专线在中国铁路总公司模式下进行股份制改革，完善法人治理结构；二是建立铁路公益性运输补贴机制，为高铁产业发展提供公正平等的竞争环境。
在产业规制政策方面，高铁产业规制内容丰富，包括价格规制政策、市场准入规制、市场退出规制、产品和服务质量规制、安全规制等。论文创新性地提出，今后一个时期，高铁产业规制着重强化两个方面内容，一是加快运价机制改革，确立灵活机动、应对市场变化能力强的经营机制。高铁产业要建立符合市场体制需要的价格形成、价格结构和价格变动制度，在遵守社会公共利益和普遍服务原则下，根据特定的管制标准、程序和方式，赋予铁路运输企业在价格上下限之间灵活浮动的权利，应该成为未来高铁运价确定的一个方向。二是应借鉴国家高铁产品质量和安全生产监管经验，成立独立、权威的高铁产品质量和安全监管机构，专门负责工程项目的开工和交付使用，铁路运营设备投入使用的审批，机车车辆的建造、购置许可，事故调查、分析及事故责任、赔偿数额和责任者的处罚，以及路网准入和互联互通的审查监督，政府投资项目的管理(包括计划、实施及资金预算)等，从制度上确定高速铁路的安全生产和运营。
在技术创新政策方面，论文提出，推动高铁产业技术发展，仍然是高铁产业发展必须关注的焦点。一方面，高铁技术之所以能在短期内取得重大发展和突破，与我国政府在高铁产业发展进程中的合理规划和有效组织、强力支持是分不开的。另一方面，我国高铁技术虽然在一系列关键技术领域取得重大创新突破，但许多技术是否已经成为成熟技术、标准化技术，尚需时间考验，而且在高铁产业国际化进程中，世界各国技术竞争愈演愈烈。在继续发挥政府在技术进步和技术创新中的战略规划和组织引导作用同时，要持续推进高速铁路技术的技术创新，防止陷入“落后-引进-再落后-再引进”的恶性循环；建立符合我国铁路实际和世界高速铁路技术发展趋势的技术标准体系；重视高铁技术的知识产权保护，为高铁产业国际化方向打好基础；加强高铁产业技术应用人员培养和培训。
在区域布局规划方面，高铁区域布局要与总体经济发展水平和区域经济发展需求、与城市化发展速度和城市群分布格局、与人口数量和人口分布密度、与特定政治环境和自然地理条件，与不同交通运输方式整体优势和组合效率的发挥等相适应、相匹配。论文在总体分析了高铁产业布局的技术结构、路网结构、时间序列结构以及综合交通运输体系的骨干地位之后，针对高铁区域布局存在的问题，重点提出了两条对策建议。一是充分发挥高速铁路网在综合交通运输体系中的担纲作用，确保高铁既能高效汇聚其他运输方式客流，又能将客流高效分流到公路、民航及城市公交、轨道交通方式中去，强化不同交通运输方式的协同效应。二是高铁布局应综合考虑各种运输方式路线、枢纽选择和选址对区域经济的开发作用，即关注高速铁路或高速公路等运输方式配比对区域经济的开发性和先导性。
在投融资政策方面，论文提出，以原铁道部为主导的负债融资的发展模式已经步入制度收益递减阶段，当前必须继续深化投融资体制改革，构建与高铁发展相适应的投融资机制和政策体系。深化投融资体制改革，要注重完善高铁交易规则；采取以股权融资、债权融资为主的多种融资方式时，要注意政策设计与高铁公司成长周期的匹配；建立公益性线路与公益性运输补贴制度；加快建立铁路发展基金。由于高铁建设投资规模大、资金回报期长特点，无论采取何种刺激措施，民间资本、社会资金投资高铁建设的规模和数量都会有很大局限，因此高铁投资主要应以政府投资为主。最为直接手段是争取国家财政加大对铁路建设支持力度。目前一个紧迫措施是加快建立铁路发展基金，既为民营资本进入铁路创造条件，又扩大铁路建设资金来源。鉴于区域性铁路和城际铁路的地方公共产品特征，地方政府作为区域铁路外部性主要和直接受益者，理应承担高铁建设投资主体责任。
高铁产业发展政策研究应用性很强。产业经济一般规律与我国铁路产业发展要求之间并不全是简单对应关系。理论推导与现实抉择或多或少存在一定差异。对高铁这种自然垄断性、公益性和经营性、社会性和赢利性集于一身的新兴战略性产业，其责任、权利和利益的划分存在一定难度，划分标准具有一定的伸缩性和弹性。目前，世界主要国家和地区铁路运输业的管理体制、运行机制由于国情、文化传统差异，没有统一模式可循，每个国家都有其不同特点。论文在运用经济学一般规律同时，从我国高铁产业发展所处特定历史、人文和制度环境的内在要求出发，力争把阶段性产业政策与产业长远发展目标、把局部性政策手段与全局性综合举措结合起来，努力使研究做得更理性和更有针对性。因此在对体制改革、产业规制、技术创新、区域布局、投融资等具体政策进行分门别类分析基础上，为保证不同领域的政策主张能够形成综合效应，论文结合我国国情、路情，提出了若干整体性的战略策略。一是要把高铁产业作为国家发展战略重点之一，进一步发挥社会主义能够集中力量办大事的制度优势；二是坚持创新驱动战略,重视高铁技术的原始创新、集成创新和引进消化吸收再创新，促进技术研发成果向现实生产力转变，加强对相关核心技术的知识产权保护；三是要提高政府产业政策工具的综合运用和效能水平；四是要加强立法建设，为促进高铁产业健康有序发展提供法律保障；五是要积极培育高铁文化品牌，打造高铁文化产业链。
高铁产业作为新兴产业尚处于成长壮大中，其综合经济影响还在不断发酵，因此论文针对我国高铁产业发展进行的对策研究还需在实践中继续深化和发展。
From the beginning of the coming into service of Japanese Tokaido Shinkansen in1964, high-speed railway across the world has formed two different railway technologysystems after more than40year’s development, typified by Japanese Shinkansen N799series plus E5series, and French TGV with German ICE respectively. The plan toconstruct high-speed railway in China has drawn much attention from thedecision-makers in1990, and has been put into effect in the late1990s. With theimplementation of Chinese railway’s leapfrog development strategy in the21st centuryand the enactment of National Plan for Medium-term and Long-term Development ofRailway Network in2004, Chinese high-speed railway has witnessed a rapid growth ina few years. The opening of Beijing-Tianjin intercity railway in August1st,2008marksthat Chinese railway industry has entered “the era of high-speed railway” officially. Tillthe end of2012, the mileage of Chinese high-speed railway passenger special linereaches9346km, ranks first in the world and surpasses the sum of the high-speedrailway mileage in all the other countries. CRH technology genealogy has entered theworld high-speed technology system as a brand new member.
In the early days of high-speed railway development, it is believed that thedevelopment of high-speed railway is just a business inside the railway industry and thisonly means to build higher level railway network and to adopt high-speed trainequipment. With the great achievements obtained in the process of introduction,digestion and re-innovation of new technology, and the revolutionary influences exertedby the construction of high-speed railway network on Chinese regional economicdevelopment, urbanization and the promotion of industrial structure, high-speed railwayhas become a new national strategic industry. In the7th world high-speed railwaymeeting held in the end of2010, a leader from State Council declared unequivocallythat Chinese government has taken high-speed railway as a new strategic industry thatneeds high priority. In2011, State Council’s Decisions on Speeding up Fostering andDeveloping New Strategic Industries has listed the development of new strategicindustries as one of the principal tasks of the period for “Twelfth Five-Year Plan”,among which one of the keys to high-end equipment manufacturing industry is to takegreat efforts to develop rail transportation equipment based on the construction of keyprojects such as passenger special line and urban rail transportation. In the end of2012,The18th National Congress of the CPC has regarded the development of high-speed railway as one of the important accomplishments in the process of building creativecountry and gives it full recognition. Moreover, high-speed railway has become ahallmark of surface transportation high-tech besides space technology and oceandetection technology.
The development of high-speed railway has brought about profound changes inChinese economy and society, but the development does not go off smoothly. Thedisputations about whether China needs high-speed railway and how to development itrun through the whole process of the development of high-speed railway. Thehigh-speed railway industry has faced many new pressures due to the accident onNingbo-Wenzhou line and the problems of debts in financing, safety of operation,quality of construction, management and cadres’ corruption. How to improve themanagement of the standardization of high-speed railway equipment and to improve thematurity of the high-speed railway equipment technology and the level of operationalmanagement, and how to deal with relations such as input and output, speed andsecurity, quality and time period, benefit and efficiency, standard and demand, have putforward many new challenges to the development of high-speed railway industry. At thebeginning of2013, State Council’s Plan to Reshuffle Institutes and to TransformGovernment Functions is adopted and the Ministry of Railway will be split intoadministrative and commercial units. The adoption and implementation of the importantmeasures of railway mechanism reform will have a significant impact on the operationand management of the existing high-speed railway and the long-term development ofhigh-speed railway construction. Under the circumstance of the support fromgovernment existing policies remaining unchanged, high-speed railway industry isconfronted with many problems such as how to maintain its proper position and gainfurther development, how to resolve the problems about its driving forces andmechanism, how to increase the investment fund sources of high-speed railwayconstruction, how to promote its safety supervision, how to boost the combinatoryefficiency of multiple transportation channels, how to cope with the fierce competitionfrom international high-speed railway technology companies. This dissertation aims toanswer and resolve the above problems effectively and pertinently by combining historyand reality and adapting theory with practice.
The first part of this dissertation first describes the developmental history, statusquo and orientation of high-speed railway industry systematically, then expounds thecontribution made by the development of high-speed railway industry to Chinese society and economy, and analyses the advantages and disadvantages of high-speedrailway development from the perspectives of management mechanism, pricingregulation, the distribution of transportation resources, and the operation andmanagement of railway transportation enterprises, finally elucidates the policies that thedevelopment of high-speed railway industry needs.
The innovation point of this part are that it takes high-speed railway industry as awhole system, and explores the relations among every subsystem, industrial core layerand external industry chain inside high-speed railway industry based on thedevelopment of the whole industry so as to widen the research horizon of industrialdevelopment and to make this research more pertinent. High-speed railway industry is astrategic industry consisting of the operation of CRH trains as the core, and research anddevelopment of technology, infrastructure construction of railway passenger speciallines, manufacture of locomotive equipment, towing and power supply, moderntechnology of telecommunication and signals, product design and service etc asintermediate links. Put high-speed railway industry in the system of national economy, itcan be divided into three components. The first is high-speed railway technology layer.The second is high-speed railway industrial core layer that can be divided into foursubsystems i.e. research and development of technology, manufacture of locomotiveequipment, construction of track projects, and high-speed railway operation andtransportation management. The third is the upstream and downstream industry chainlayers related to high-speed railway industry. This dissertation takes high-speed railwayindustrial core layer as its principal object of study, and by comparing the developmentof high-speed railway industry under the traditional institution and that under thecondition of separating government functions from enterprise management, it exploresthe introduction, research and innovation of high-speed railway, the transformation fromits technology chain to its industry chain, and the relations of mutual influence,restriction and coordination among the subsystems inside that industry, and the positivecorrelation effect high-speed railway industry has on the other national economicindustrial systems and regional economic development, then points out thedevelopmental orientation of high-speed railway industry, finally indicates thesignificance and urgency of the developmental policy study of high-speed railwayindustry.
The second part centers mainly on the process of policy formulation, the importantpolicy content and the implementing means of policies, and presents according suggestions and proposals in the fields of regulatory institutions, pricing and safetyregulation, technology development, reform of investment and financing, and regionalarrangement of high-speed railway industry respectively.
At the aspect of regulatory institutions, the objective of Chinese high-speed railwayindustry regulation is to readjust the relations between government and high-speedrailway enterprises, between high-speed railway enterprises and the market so as tomake government regulation more swift and flexible to adapt itself to the economic andsocial changes. As far as regulatory agencies and regulatory subjects are concerned, thepresent key point is to do two tasks well. One is to merge regulatory agencies and carryout integrate management. A united regulatory agency that ought to be under theNational Congress or State council and be clear-cut in the division of labor, clear inresponsibilities, concert in step, and independent, should be established to managehigh-speed railway industry, to regulate and supervise the plan of railway networkconstruction, the pricing of high-speed railway, safety control, product quality andservice standard, market access and withdrawal and so on. The other is to regulate bylaw and to pursue a “Legislation First” principle. There must be explicit detailed lawsabout the regulatory standard, means, methods and implementing rules and theregulation must be reasonable under the condition of ensuring the enterprises to beindependent market subjects and being conducive to the legal operation of theenterprises. As to the regulatory object, that is high-speed railway enterprise, it ought todeepen the reform of marketization, set up modern enterprise system, and enhance thecorporate governance structure. Among the four subsystems of high-speed railwayindustry, the other three subsystems have attained a higher marketization level and theirstatus as independent market subjects has basically been established. Only railwayenterprise as the operation and management subsystem of high-speed railway industryhas not set up modern enterprise system yet, and thus its market business is stillconstrained by a lot of subjective and objective factors. Therefore, the most urgent taskof high-speed railway industry is to reform the management system of high-speedrailway service section, ensure the service section to be independent market subject, andmake a fuller exhibition of the advantages of high-speed railway in speed, technology,quality and service. The marketization reform of railway enterprises still needs to makebreakthroughs in two fronts besides the basic directions and main measures establishedin State Council’s Plan to Reshuffle Institutes and to Transform Government Functions.One is to conduct shareholding reform for railway passenger special line following the mode of China Railway Corporation and enhance the corporate governance structure.The other is to establish a subsidy mechanism for railway transportation in the publicinterest so as to provide a fair and equal competition environment to high-speed railwayindustry.
The regulation of high-speed rail industry includes price regulation policies,market access regulation, market exit regulation, products and service quality regulation,safety regulation system. The paper innovatively put forward that high-speed railindustry regulation would focus on strengthening the following two aspects, the first isto accelerate the reform of the price mechanism, establishing the operating mechanismwith flexible response to the changes in the market. The high-speed rail industry shouldestablish price formation, price structure and price movements institution to meet theneeds of the market system. Complying with the public interests and the principle ofuniversal service, to give rail transport enterprise flexible pricing power between thelower and upper price boundary based on the specific control standards, procedures andmethods, should be a direction of high-speed rail freight determined in the future. Thesecond is to use national high-speed rail product quality and safety regulationexperiences as a reference and establish independent and authoritative high-speed railproduct quality and safety regulator, specially taking charge of the construction andconsign of the projects, examination and approval of equipment, vehicles built, purchaselicense, accident survey and analysis, accident liability, compensation and theresponsibility punishment, network access and interconnection and interworkingexamination and supervision, government invest project management, and so on,institutionally ensuring the safety production and operation in high-speed rail.
In technology innovation policies, the paper proposes that promoting thedevelopment of industrial technology in high-speed rail, still must be a focus ofattention for the development of high-speed rail industry. On the one hand, thehigh-speed rail technology has been able to achieve significant development andbreakthrough in short term, which is inseparable with the Chinese governmentreasonable planning and an effective organization and strong support in the process ofindustrial development of high-speed rail. On the other hand, China's high-speed railtechnology made significant innovations and breakthroughs in a range of keytechnology areas, but whether these techniques has become a mature and standardizedtechnology, it needs time to test, in the meantime, the world's technology becomes morecompetitive in the process of internationalization of the high-speed rail industry. The government continues to display the Strategic planning and organization leading role, atthe same time, we must continue to promote the technological innovation of thehigh-speed rail technology, protect us against the vicious cycle of backward-introduction-and then backward-the introduction; establish railway technicalstandards system corresponding our country's current and the world's high-speed railtechnology develop trends; give great importance to the protection of intellectualproperty rights of high-speed rail technology, and to lay the foundation for theinternational direction of the high-speed rail industry; strengthen the cultivating andtraining of technical staff in high-speed rail industry.
In regional distribution planning, high-speed rail regional distribution should beadjusted with and match the overall economic development level and regional economicdevelopment needs, urbanization development speed and urban group distributionpattern, population size and population distribution density, particular politicalenvironment and the natural and geographical conditions, the overall advantages andcombination efficiency of different transportation modes. The paper gives an overallanalysis of the technology structure, road network structure, the structure of the timeseries of the industrial regional distribution, and the backbone status in integratedtransportation system, aims at the problems of the regional distribution of thehigh-speed rail, two suggestions are proposed. First, give full play to the high-speed railnetwork in the overall transportation system starring role ensuring that high-speed rail isboth efficiently way of brought passenger together from other modes of transportation,but also efficiently in shunting the passenger to the highways, civil aviation and the citybus, rail transportation, and strengthen synergies of different modes of transportation.Second, the distribution of the high-speed rail should comprehensively consider theroutes of various modes of transport, hub choice and the role of location to regionaleconomic development, which is concerned about the development and pilot role of theratio of high-speed rail or highway transportation to regional economy.
In terms of investment and financing policies, the paper presents that thedevelopment model of debt financing the former Ministry of Railways led has beenprogress into the system revenue decreasing stage, currently, the reform of theinvestment and financing system must continue to deepen, and investment and financingmechanism and policy system which fit for high-speed railway development should bebuilt. To deepen the reform of the investment and financing system, the trading rules ofthe high-speed rail should be improved; when taking equity financing, debt financing based financing, matching degree of policy design and high-speed rail company'sgrowth cycle should be paid attention to. Subsidies system for a welfare line with thepublic service transport should be established. The establishment of the railwaydevelopment fund should be accelerated. Due to the large size and long capital returnperiod features of the high-speed railway construction investment, no matter whatstimulus measures to take, the size and number of private capital, social capitalinvestment in high-speed rail construction will have significant limitations. Therefore,investment in high-speed rail should be government investment led. The most directway is striving for more and strongly support form national finance. At present, anurgent measure is to speed up the establishment of railway development fund, creatingthe conditions for private capital to enter the railway, as well as expanding the sourcesof funding for railway construction. In view of the local public goods characteristics ofrail and intercity rail, as the main and the direct regional railway externalitybeneficiaries, local government should bear the construction investment responsibility.
Policy research on development of high-speed rail industry is a strong appliedsubject. the general rule that industrial economics reveals, is not the exact one-to-onecorrespondence with China's national conditions and the requirements of the railwayindustry development decided by the human environment. There is always more or lessa difference between theoretical deduction and realistic choice. To high-speed rail,which combines the natural monopoly, public and commercial, social and profitablecharacters in one body, it must be difficult to divide the roles, responsibilities, rights andinterests, the criteria should have a certain degree of scalability and flexibility. Atpresent, in the world's major countries and regions, the operation mechanism of railwaytransport management system is different from each other, without a single unifiedmode, because of differences in national conditions, cultural traditions. Using andrespecting for the general laws of economics at the same time, from the inherentrequirements of a particular historical, cultural and institutional environment for thedevelopment of high-speed rail industry, the paper focuses on combining the stage ofindustrial policy and industry in the long term development objectives, means of localpolicies and global integrated initiatives together to make the research more rational andmore targeted. Therefore, based on the analysis on institutional reform, regulation,technology innovation, regional distribution and financing policies, to ensure that thepolicies in different areas could format comprehensive effects, combining with China'snational conditions, road condition, this paper proposes a number of overall strategies. First, consider high-speed rail industry as one of the country’s development strategyfocus on, further play socialist system advantage that to set power do event. The secondis adhere to the innovation driven strategy, pay more attention to the original innovation,integrated innovation and the introduction of digestive absorption again innovation inhigh-speed rail technology, promote technology research and development resultsconverting to reality productivity, strengthen intellectual property protection to relatedcore technology. The third is to improve the comprehensive use and effectiveness levelof government industry policy tools. The fourth is to strengthen legislative construction,provide legal protection for promoting high-speed rail industry health ordereddevelopment. The fifth is to cultivate high-speed rail culture brand and build high-speedrail culture industry chain positively.
As a new industry，high-speed rail industry is still in the process of growth, itsintegrated economic impact is continuing to ferment. Therefore, the study on thecountermeasures of the development of high-speed rail industry also needs to pursuefurther and develop in practice.
高铁发展初期，人们普遍认为高铁发展只意味着铁路行业内部高等级路网的铺设、高速列车装备的使用。随着引进、消化吸引再创新技术路径取得重大成就，以及高速铁路网建设给我国区域经济发展、城市化进程加快、产业结构升级带来的革命性影响，高速铁路成为国家战略型新兴产业。在2010年底召开的第七届世界高速铁路大会上，国务院领导明确宣布：中国政府已将高速铁路作为优先发展的战略性新兴产业。2011年《国务院关于加快培育和发展战略性新兴产业的决定》提出“十二五”加快发展高端装备制造产业的重点之一就是依托客运专线和城市轨道交通等重点工程建设，大力发展轨道交通装备。2012年底党的十八大把高速铁路发展作为创新型国家建设重大成就之一给予充分肯定，高速铁路成为宇宙空间技术、海洋探测技术之外地面运输高新技术的代表。
尽管高铁发展给我国经济社会生活带来深刻变化，但高速铁路发展之路并非一帆风顺。高铁是否需要发展、如何发展等论争贯穿在高铁发展全过程。甬温线动车组安全事故，以及融资债务、安全运营、施工质量、管理失控和领导腐败等问题的暴露，使高铁产业发展面临新的压力。如何加强高速铁路技术设备的标准化管理，进一步提升高速铁路设备的技术成熟度和运营管理水平，如何处理好投入与产出、速度与安全、质量与工期、效益与效率、标准和需求等一系列问题，对高铁产业发展提出了新挑战。2013年初《国务院机构改革和职能转变方案》出台，铁路实行政企分开总体性改革。这一重大体制改革对已建高铁资产的运营管理、高铁建设长远发展将产生重大影响。在国家已有产业政策保持稳定不变的情况下，高铁产业如何保持应有地位和获得更大发展、如何解决好高铁产业发展的动力机制、如何解决高铁建设投资资金来源、如何解决高速铁路发展安全监管、如何处理好多种交通运输方式的组合效率、如何应对来自国际高铁技术的激烈竞争等问题，摆在了高铁产业发展面前。历史与现实相结合、理论与实践相适应，有针对性回答并解决上述不同层面问题，是本论文研究的立足点和落脚点。
论文第一大部分，系统梳理高铁产业的发展历程、发展现状和发展定位，重点分析高铁产业发展对我国社会经济生活发展的贡献作用，并从管理体制、运价规制、运输资源配置及铁路运输企业经营管理状况等角度入手，剖析了影响高铁发展的有利和不利因素，进而阐明高铁产业发展的政策需求。
这部分内容创新点是把高铁产业视为完整系统，以整个产业发展为立足点，研究高铁产业内各子系统、产业核心层与外部产业链系统的关系，使产业发展研究视野更开阔、针对性更强。高铁产业以高速动车组运营和服务为核心，包括技术研发、客运专线基础设施建设、机车车辆装备制造、牵引供电及现代通信和信号技术、产品设计和服务等诸多环节的战略性产业。置于国民经济大系统中考察，高铁产业可分成三个组成部分。一是高铁技术层。二是高铁产业核心层，可分为技术研发、机车车辆装备制造、工务工程建设、高铁运营和运输管理等四个子系统。三是高铁产业涉及的上下游产业链条层。论文着重以高铁产业核心层为研究对象，通过传统体制和政企分开体制下高铁产业发展比较，分析了高铁技术引进研发和创新、技术链向产业链转化、产业内各子系统相互影响和制约协调推进的关系，以及高铁产业系统对其它国民经济产业系统、区域经济发展的正相关效应，明确了高铁产业的发展定位，揭示了高铁产业发展政策研究的重要性和迫切性。
论文第二大部分，主要围绕政策制定过程、政策重点内容及政策实施手段，分别在高铁产业发展的管制体制、运价及安全规制、技术发展、投融资改革以及高速铁路区域布局等领域，提出了相应的政策建议。
在管制体制方面，我国高铁产业管制目标是重新调整政府与企业、企业与市场的关系，使政府规制能更迅速灵活地适应经济社会形势变化。从管制机构和管制主体来说，当前重点抓好两大任务：一是统一管制机构，坚持一体化管理，铁路产业、高铁产业须由一个隶属人大或国务院下分工明确、职责清晰、步调一致、独立运作的统一管制机构来完成，对路网建设规划、高铁价格、安全监控、产品质量和服务标准、市场准入退出等领域实施监管。二是依法合理管制，坚持立法先行原则。管制标准、内涵、手段、方法和实施细则必须有明确具体的立法规范，并在切实保障企业独立的市场主体地位、有利于企业合法经营的前提下实施合理管制。从管制对象即高铁产业企业来说，深化市场化改革，建立现代企业制度，完善公司制法人治理结构。在高铁产业发展的四个子系统中，其它三个子系统市场化水平较高，企业市场主体地位基本确立。唯独作为高铁产业经营管理子系统的铁路企业，尚未完全确立现代企业制度，市场经营还受各种主客观因素的制约。因此，高铁产业发展当前最迫切的任务是，通过高速铁路营运部门的管理体制改革，确立运营企业的市场主体地位，使高铁产业现有速度优势、技术优势、质量优势和服务优势得到更充分展示。铁路企业市场化改革，除《国务院机构改革和职能转变方案》已经确定的基本方向主要措施外，需要从两个方面取得重点突破，一是现有客运专线在中国铁路总公司模式下进行股份制改革，完善法人治理结构；二是建立铁路公益性运输补贴机制，为高铁产业发展提供公正平等的竞争环境。
在产业规制政策方面，高铁产业规制内容丰富，包括价格规制政策、市场准入规制、市场退出规制、产品和服务质量规制、安全规制等。论文创新性地提出，今后一个时期，高铁产业规制着重强化两个方面内容，一是加快运价机制改革，确立灵活机动、应对市场变化能力强的经营机制。高铁产业要建立符合市场体制需要的价格形成、价格结构和价格变动制度，在遵守社会公共利益和普遍服务原则下，根据特定的管制标准、程序和方式，赋予铁路运输企业在价格上下限之间灵活浮动的权利，应该成为未来高铁运价确定的一个方向。二是应借鉴国家高铁产品质量和安全生产监管经验，成立独立、权威的高铁产品质量和安全监管机构，专门负责工程项目的开工和交付使用，铁路运营设备投入使用的审批，机车车辆的建造、购置许可，事故调查、分析及事故责任、赔偿数额和责任者的处罚，以及路网准入和互联互通的审查监督，政府投资项目的管理(包括计划、实施及资金预算)等，从制度上确定高速铁路的安全生产和运营。
在技术创新政策方面，论文提出，推动高铁产业技术发展，仍然是高铁产业发展必须关注的焦点。一方面，高铁技术之所以能在短期内取得重大发展和突破，与我国政府在高铁产业发展进程中的合理规划和有效组织、强力支持是分不开的。另一方面，我国高铁技术虽然在一系列关键技术领域取得重大创新突破，但许多技术是否已经成为成熟技术、标准化技术，尚需时间考验，而且在高铁产业国际化进程中，世界各国技术竞争愈演愈烈。在继续发挥政府在技术进步和技术创新中的战略规划和组织引导作用同时，要持续推进高速铁路技术的技术创新，防止陷入“落后-引进-再落后-再引进”的恶性循环；建立符合我国铁路实际和世界高速铁路技术发展趋势的技术标准体系；重视高铁技术的知识产权保护，为高铁产业国际化方向打好基础；加强高铁产业技术应用人员培养和培训。
在区域布局规划方面，高铁区域布局要与总体经济发展水平和区域经济发展需求、与城市化发展速度和城市群分布格局、与人口数量和人口分布密度、与特定政治环境和自然地理条件，与不同交通运输方式整体优势和组合效率的发挥等相适应、相匹配。论文在总体分析了高铁产业布局的技术结构、路网结构、时间序列结构以及综合交通运输体系的骨干地位之后，针对高铁区域布局存在的问题，重点提出了两条对策建议。一是充分发挥高速铁路网在综合交通运输体系中的担纲作用，确保高铁既能高效汇聚其他运输方式客流，又能将客流高效分流到公路、民航及城市公交、轨道交通方式中去，强化不同交通运输方式的协同效应。二是高铁布局应综合考虑各种运输方式路线、枢纽选择和选址对区域经济的开发作用，即关注高速铁路或高速公路等运输方式配比对区域经济的开发性和先导性。
在投融资政策方面，论文提出，以原铁道部为主导的负债融资的发展模式已经步入制度收益递减阶段，当前必须继续深化投融资体制改革，构建与高铁发展相适应的投融资机制和政策体系。深化投融资体制改革，要注重完善高铁交易规则；采取以股权融资、债权融资为主的多种融资方式时，要注意政策设计与高铁公司成长周期的匹配；建立公益性线路与公益性运输补贴制度；加快建立铁路发展基金。由于高铁建设投资规模大、资金回报期长特点，无论采取何种刺激措施，民间资本、社会资金投资高铁建设的规模和数量都会有很大局限，因此高铁投资主要应以政府投资为主。最为直接手段是争取国家财政加大对铁路建设支持力度。目前一个紧迫措施是加快建立铁路发展基金，既为民营资本进入铁路创造条件，又扩大铁路建设资金来源。鉴于区域性铁路和城际铁路的地方公共产品特征，地方政府作为区域铁路外部性主要和直接受益者，理应承担高铁建设投资主体责任。
高铁产业发展政策研究应用性很强。产业经济一般规律与我国铁路产业发展要求之间并不全是简单对应关系。理论推导与现实抉择或多或少存在一定差异。对高铁这种自然垄断性、公益性和经营性、社会性和赢利性集于一身的新兴战略性产业，其责任、权利和利益的划分存在一定难度，划分标准具有一定的伸缩性和弹性。目前，世界主要国家和地区铁路运输业的管理体制、运行机制由于国情、文化传统差异，没有统一模式可循，每个国家都有其不同特点。论文在运用经济学一般规律同时，从我国高铁产业发展所处特定历史、人文和制度环境的内在要求出发，力争把阶段性产业政策与产业长远发展目标、把局部性政策手段与全局性综合举措结合起来，努力使研究做得更理性和更有针对性。因此在对体制改革、产业规制、技术创新、区域布局、投融资等具体政策进行分门别类分析基础上，为保证不同领域的政策主张能够形成综合效应，论文结合我国国情、路情，提出了若干整体性的战略策略。一是要把高铁产业作为国家发展战略重点之一，进一步发挥社会主义能够集中力量办大事的制度优势；二是坚持创新驱动战略,重视高铁技术的原始创新、集成创新和引进消化吸收再创新，促进技术研发成果向现实生产力转变，加强对相关核心技术的知识产权保护；三是要提高政府产业政策工具的综合运用和效能水平；四是要加强立法建设，为促进高铁产业健康有序发展提供法律保障；五是要积极培育高铁文化品牌，打造高铁文化产业链。
高铁产业作为新兴产业尚处于成长壮大中，其综合经济影响还在不断发酵，因此论文针对我国高铁产业发展进行的对策研究还需在实践中继续深化和发展。
From the beginning of the coming into service of Japanese Tokaido Shinkansen in1964, high-speed railway across the world has formed two different railway technologysystems after more than40year’s development, typified by Japanese Shinkansen N799series plus E5series, and French TGV with German ICE respectively. The plan toconstruct high-speed railway in China has drawn much attention from thedecision-makers in1990, and has been put into effect in the late1990s. With theimplementation of Chinese railway’s leapfrog development strategy in the21st centuryand the enactment of National Plan for Medium-term and Long-term Development ofRailway Network in2004, Chinese high-speed railway has witnessed a rapid growth ina few years. The opening of Beijing-Tianjin intercity railway in August1st,2008marksthat Chinese railway industry has entered “the era of high-speed railway” officially. Tillthe end of2012, the mileage of Chinese high-speed railway passenger special linereaches9346km, ranks first in the world and surpasses the sum of the high-speedrailway mileage in all the other countries. CRH technology genealogy has entered theworld high-speed technology system as a brand new member.
In the early days of high-speed railway development, it is believed that thedevelopment of high-speed railway is just a business inside the railway industry and thisonly means to build higher level railway network and to adopt high-speed trainequipment. With the great achievements obtained in the process of introduction,digestion and re-innovation of new technology, and the revolutionary influences exertedby the construction of high-speed railway network on Chinese regional economicdevelopment, urbanization and the promotion of industrial structure, high-speed railwayhas become a new national strategic industry. In the7th world high-speed railwaymeeting held in the end of2010, a leader from State Council declared unequivocallythat Chinese government has taken high-speed railway as a new strategic industry thatneeds high priority. In2011, State Council’s Decisions on Speeding up Fostering andDeveloping New Strategic Industries has listed the development of new strategicindustries as one of the principal tasks of the period for “Twelfth Five-Year Plan”,among which one of the keys to high-end equipment manufacturing industry is to takegreat efforts to develop rail transportation equipment based on the construction of keyprojects such as passenger special line and urban rail transportation. In the end of2012,The18th National Congress of the CPC has regarded the development of high-speed railway as one of the important accomplishments in the process of building creativecountry and gives it full recognition. Moreover, high-speed railway has become ahallmark of surface transportation high-tech besides space technology and oceandetection technology.
The development of high-speed railway has brought about profound changes inChinese economy and society, but the development does not go off smoothly. Thedisputations about whether China needs high-speed railway and how to development itrun through the whole process of the development of high-speed railway. Thehigh-speed railway industry has faced many new pressures due to the accident onNingbo-Wenzhou line and the problems of debts in financing, safety of operation,quality of construction, management and cadres’ corruption. How to improve themanagement of the standardization of high-speed railway equipment and to improve thematurity of the high-speed railway equipment technology and the level of operationalmanagement, and how to deal with relations such as input and output, speed andsecurity, quality and time period, benefit and efficiency, standard and demand, have putforward many new challenges to the development of high-speed railway industry. At thebeginning of2013, State Council’s Plan to Reshuffle Institutes and to TransformGovernment Functions is adopted and the Ministry of Railway will be split intoadministrative and commercial units. The adoption and implementation of the importantmeasures of railway mechanism reform will have a significant impact on the operationand management of the existing high-speed railway and the long-term development ofhigh-speed railway construction. Under the circumstance of the support fromgovernment existing policies remaining unchanged, high-speed railway industry isconfronted with many problems such as how to maintain its proper position and gainfurther development, how to resolve the problems about its driving forces andmechanism, how to increase the investment fund sources of high-speed railwayconstruction, how to promote its safety supervision, how to boost the combinatoryefficiency of multiple transportation channels, how to cope with the fierce competitionfrom international high-speed railway technology companies. This dissertation aims toanswer and resolve the above problems effectively and pertinently by combining historyand reality and adapting theory with practice.
The first part of this dissertation first describes the developmental history, statusquo and orientation of high-speed railway industry systematically, then expounds thecontribution made by the development of high-speed railway industry to Chinese society and economy, and analyses the advantages and disadvantages of high-speedrailway development from the perspectives of management mechanism, pricingregulation, the distribution of transportation resources, and the operation andmanagement of railway transportation enterprises, finally elucidates the policies that thedevelopment of high-speed railway industry needs.
The innovation point of this part are that it takes high-speed railway industry as awhole system, and explores the relations among every subsystem, industrial core layerand external industry chain inside high-speed railway industry based on thedevelopment of the whole industry so as to widen the research horizon of industrialdevelopment and to make this research more pertinent. High-speed railway industry is astrategic industry consisting of the operation of CRH trains as the core, and research anddevelopment of technology, infrastructure construction of railway passenger speciallines, manufacture of locomotive equipment, towing and power supply, moderntechnology of telecommunication and signals, product design and service etc asintermediate links. Put high-speed railway industry in the system of national economy, itcan be divided into three components. The first is high-speed railway technology layer.The second is high-speed railway industrial core layer that can be divided into foursubsystems i.e. research and development of technology, manufacture of locomotiveequipment, construction of track projects, and high-speed railway operation andtransportation management. The third is the upstream and downstream industry chainlayers related to high-speed railway industry. This dissertation takes high-speed railwayindustrial core layer as its principal object of study, and by comparing the developmentof high-speed railway industry under the traditional institution and that under thecondition of separating government functions from enterprise management, it exploresthe introduction, research and innovation of high-speed railway, the transformation fromits technology chain to its industry chain, and the relations of mutual influence,restriction and coordination among the subsystems inside that industry, and the positivecorrelation effect high-speed railway industry has on the other national economicindustrial systems and regional economic development, then points out thedevelopmental orientation of high-speed railway industry, finally indicates thesignificance and urgency of the developmental policy study of high-speed railwayindustry.
The second part centers mainly on the process of policy formulation, the importantpolicy content and the implementing means of policies, and presents according suggestions and proposals in the fields of regulatory institutions, pricing and safetyregulation, technology development, reform of investment and financing, and regionalarrangement of high-speed railway industry respectively.
At the aspect of regulatory institutions, the objective of Chinese high-speed railwayindustry regulation is to readjust the relations between government and high-speedrailway enterprises, between high-speed railway enterprises and the market so as tomake government regulation more swift and flexible to adapt itself to the economic andsocial changes. As far as regulatory agencies and regulatory subjects are concerned, thepresent key point is to do two tasks well. One is to merge regulatory agencies and carryout integrate management. A united regulatory agency that ought to be under theNational Congress or State council and be clear-cut in the division of labor, clear inresponsibilities, concert in step, and independent, should be established to managehigh-speed railway industry, to regulate and supervise the plan of railway networkconstruction, the pricing of high-speed railway, safety control, product quality andservice standard, market access and withdrawal and so on. The other is to regulate bylaw and to pursue a “Legislation First” principle. There must be explicit detailed lawsabout the regulatory standard, means, methods and implementing rules and theregulation must be reasonable under the condition of ensuring the enterprises to beindependent market subjects and being conducive to the legal operation of theenterprises. As to the regulatory object, that is high-speed railway enterprise, it ought todeepen the reform of marketization, set up modern enterprise system, and enhance thecorporate governance structure. Among the four subsystems of high-speed railwayindustry, the other three subsystems have attained a higher marketization level and theirstatus as independent market subjects has basically been established. Only railwayenterprise as the operation and management subsystem of high-speed railway industryhas not set up modern enterprise system yet, and thus its market business is stillconstrained by a lot of subjective and objective factors. Therefore, the most urgent taskof high-speed railway industry is to reform the management system of high-speedrailway service section, ensure the service section to be independent market subject, andmake a fuller exhibition of the advantages of high-speed railway in speed, technology,quality and service. The marketization reform of railway enterprises still needs to makebreakthroughs in two fronts besides the basic directions and main measures establishedin State Council’s Plan to Reshuffle Institutes and to Transform Government Functions.One is to conduct shareholding reform for railway passenger special line following the mode of China Railway Corporation and enhance the corporate governance structure.The other is to establish a subsidy mechanism for railway transportation in the publicinterest so as to provide a fair and equal competition environment to high-speed railwayindustry.
The regulation of high-speed rail industry includes price regulation policies,market access regulation, market exit regulation, products and service quality regulation,safety regulation system. The paper innovatively put forward that high-speed railindustry regulation would focus on strengthening the following two aspects, the first isto accelerate the reform of the price mechanism, establishing the operating mechanismwith flexible response to the changes in the market. The high-speed rail industry shouldestablish price formation, price structure and price movements institution to meet theneeds of the market system. Complying with the public interests and the principle ofuniversal service, to give rail transport enterprise flexible pricing power between thelower and upper price boundary based on the specific control standards, procedures andmethods, should be a direction of high-speed rail freight determined in the future. Thesecond is to use national high-speed rail product quality and safety regulationexperiences as a reference and establish independent and authoritative high-speed railproduct quality and safety regulator, specially taking charge of the construction andconsign of the projects, examination and approval of equipment, vehicles built, purchaselicense, accident survey and analysis, accident liability, compensation and theresponsibility punishment, network access and interconnection and interworkingexamination and supervision, government invest project management, and so on,institutionally ensuring the safety production and operation in high-speed rail.
In technology innovation policies, the paper proposes that promoting thedevelopment of industrial technology in high-speed rail, still must be a focus ofattention for the development of high-speed rail industry. On the one hand, thehigh-speed rail technology has been able to achieve significant development andbreakthrough in short term, which is inseparable with the Chinese governmentreasonable planning and an effective organization and strong support in the process ofindustrial development of high-speed rail. On the other hand, China's high-speed railtechnology made significant innovations and breakthroughs in a range of keytechnology areas, but whether these techniques has become a mature and standardizedtechnology, it needs time to test, in the meantime, the world's technology becomes morecompetitive in the process of internationalization of the high-speed rail industry. The government continues to display the Strategic planning and organization leading role, atthe same time, we must continue to promote the technological innovation of thehigh-speed rail technology, protect us against the vicious cycle of backward-introduction-and then backward-the introduction; establish railway technicalstandards system corresponding our country's current and the world's high-speed railtechnology develop trends; give great importance to the protection of intellectualproperty rights of high-speed rail technology, and to lay the foundation for theinternational direction of the high-speed rail industry; strengthen the cultivating andtraining of technical staff in high-speed rail industry.
In regional distribution planning, high-speed rail regional distribution should beadjusted with and match the overall economic development level and regional economicdevelopment needs, urbanization development speed and urban group distributionpattern, population size and population distribution density, particular politicalenvironment and the natural and geographical conditions, the overall advantages andcombination efficiency of different transportation modes. The paper gives an overallanalysis of the technology structure, road network structure, the structure of the timeseries of the industrial regional distribution, and the backbone status in integratedtransportation system, aims at the problems of the regional distribution of thehigh-speed rail, two suggestions are proposed. First, give full play to the high-speed railnetwork in the overall transportation system starring role ensuring that high-speed rail isboth efficiently way of brought passenger together from other modes of transportation,but also efficiently in shunting the passenger to the highways, civil aviation and the citybus, rail transportation, and strengthen synergies of different modes of transportation.Second, the distribution of the high-speed rail should comprehensively consider theroutes of various modes of transport, hub choice and the role of location to regionaleconomic development, which is concerned about the development and pilot role of theratio of high-speed rail or highway transportation to regional economy.
In terms of investment and financing policies, the paper presents that thedevelopment model of debt financing the former Ministry of Railways led has beenprogress into the system revenue decreasing stage, currently, the reform of theinvestment and financing system must continue to deepen, and investment and financingmechanism and policy system which fit for high-speed railway development should bebuilt. To deepen the reform of the investment and financing system, the trading rules ofthe high-speed rail should be improved; when taking equity financing, debt financing based financing, matching degree of policy design and high-speed rail company'sgrowth cycle should be paid attention to. Subsidies system for a welfare line with thepublic service transport should be established. The establishment of the railwaydevelopment fund should be accelerated. Due to the large size and long capital returnperiod features of the high-speed railway construction investment, no matter whatstimulus measures to take, the size and number of private capital, social capitalinvestment in high-speed rail construction will have significant limitations. Therefore,investment in high-speed rail should be government investment led. The most directway is striving for more and strongly support form national finance. At present, anurgent measure is to speed up the establishment of railway development fund, creatingthe conditions for private capital to enter the railway, as well as expanding the sourcesof funding for railway construction. In view of the local public goods characteristics ofrail and intercity rail, as the main and the direct regional railway externalitybeneficiaries, local government should bear the construction investment responsibility.
Policy research on development of high-speed rail industry is a strong appliedsubject. the general rule that industrial economics reveals, is not the exact one-to-onecorrespondence with China's national conditions and the requirements of the railwayindustry development decided by the human environment. There is always more or lessa difference between theoretical deduction and realistic choice. To high-speed rail,which combines the natural monopoly, public and commercial, social and profitablecharacters in one body, it must be difficult to divide the roles, responsibilities, rights andinterests, the criteria should have a certain degree of scalability and flexibility. Atpresent, in the world's major countries and regions, the operation mechanism of railwaytransport management system is different from each other, without a single unifiedmode, because of differences in national conditions, cultural traditions. Using andrespecting for the general laws of economics at the same time, from the inherentrequirements of a particular historical, cultural and institutional environment for thedevelopment of high-speed rail industry, the paper focuses on combining the stage ofindustrial policy and industry in the long term development objectives, means of localpolicies and global integrated initiatives together to make the research more rational andmore targeted. Therefore, based on the analysis on institutional reform, regulation,technology innovation, regional distribution and financing policies, to ensure that thepolicies in different areas could format comprehensive effects, combining with China'snational conditions, road condition, this paper proposes a number of overall strategies. First, consider high-speed rail industry as one of the country’s development strategyfocus on, further play socialist system advantage that to set power do event. The secondis adhere to the innovation driven strategy, pay more attention to the original innovation,integrated innovation and the introduction of digestive absorption again innovation inhigh-speed rail technology, promote technology research and development resultsconverting to reality productivity, strengthen intellectual property protection to relatedcore technology. The third is to improve the comprehensive use and effectiveness levelof government industry policy tools. The fourth is to strengthen legislative construction,provide legal protection for promoting high-speed rail industry health ordereddevelopment. The fifth is to cultivate high-speed rail culture brand and build high-speedrail culture industry chain positively.
As a new industry，high-speed rail industry is still in the process of growth, itsintegrated economic impact is continuing to ferment. Therefore, the study on thecountermeasures of the development of high-speed rail industry also needs to pursuefurther and develop in practice.
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