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The author:(作者)左published in(发表于) 2013/11/12 0:06:04 Expert： reform of monopoly industries is the transformation of government functions is the most difficult part
Government reform 30 years: the border looking for public power
For more than 30 years since the reform and opening up, going through 7 rounds of government reform, every major strategic change, institutional reform and government reform--the Government function transformation – is reflected in: whether it is the center of the party's work to economic construction, establishing a socialist market economic system, or to join the WTO.
Depth of view, government reforms of China's more than 30 years, although each time a different milestone, although different in emphasis, but consistent theme was that change functions in order to promote economic growth. The objective consequence is that constantly adjust the relation between Government and market--from the all-powerful Government planned economy system to the process of Government and market differentiation, is indeed looking for public power boundary process.
This also made government reform a process of building a modern State. One of the basic meaning of the modern State, which is public power has boundary, followed by democratization and the rule of law.
While in China, to fully clarify the boundaries of power and market, only a narrow government reform – reform the administrative system and the transformation of government functions as the main content-is not enough, it must be extended to the ruling party, reform of the judicial system.
After 2008 the Government's role in the allocation of resources to increase
Launch in 1982 after the reform and opening up since the first round of institutional reform, among China's 31-year 7 rounds were carried out government reforms, although sometimes focus on the institutional reform, sometimes the transformation of government functions, but the consistent theme was the promotion of economic growth.
"This is one of the 30 seven government reform laws and reform of Chinese Government ' logical start ' and ' historic starting point. ' "The transformation of government functions under the State Council expert group member Professor, national school of administration, Song Shiming said.
From 7 rounds of government reform as the principal view, apart from the 1982 reform mainly political background for the first time – the work center by the political party turned to economic construction, double 1988 reform were political and economic background, 5 government reforms of other economic factors are the main background.
This 7 round government reform, although each a times of results different--1982 reform opened has cadres personnel system scientific, and democratization, and institutionalized of course, 1988 reform first made has "changes government functions is institutional reform of key", 1993 reform clear has "Executive reform of purpose is adapted to construction socialist market economy system of need", 1998 reform elimination has Enterprise marriage of organization based, 2003 reform began concern public regulatory, 2008 reform opened up most of the system to explore--but overall, and commonality.
Public administration at Peking University Professor Li Qiang, which several government reform for the transformation of government functions and units, stripped some of the Government's non-public functions, enabling the Government to become a simple transformation of institutions exercising public authority, the provision of public goods, enable enterprises and institutions to begin moving to a purely economic or social entity, with no more versatile functions of political grassroots organizations.
In particular: first, with a few reforms, direct government involvement in economic activity, the size and extent of the business greatly reduced, most ministries are mainly changes to the provision of public goods sectors. Especially in the 2003 reform of the State Council, set up a State-owned assets supervision and Administration Commission, State-owned assets supervision.
"After the reform, the Central Government provided public functions of both products and management of State-owned assets system distinguishes, in other words, the Government as owner of the exercise of public power and the capital's role or the producers of the two apart. "Li Qiang explained.
Secondly, in the transformation of government functions at the same time, or the subtraction of the original Government Department at the same time, according to the needs of the market economy and the development of civil society, set up to provide public goods functions of government agencies in some areas in order to address the so-called Government "vacancy" issues such as work safety supervision Bureau, the food and Drug Administration Committee.
Thirdly, reform of the tax system, establishment of a public finance system to produce tangible results, exercise of public authority and relies mainly on public finance support, relying less on the various forms of charges.
IV, enterprise reform has achieved remarkable results. Through a series of classified reform of State-owned enterprises, the State-owned units of the original features have been greatly impaired, provision of public goods functions of State-owned enterprises to significantly reduce gradually into the producer of this activity in accordance with the principles of the market economy to participate in a market economy.
However, before and after 7 rounds, lasting more than 30 years of government reform, does not mean that has clarified the relationship between Government and market, Government and society.
"The transformation of government functions are not in place, run on the micro-economic intervention, social management and public services are still weak, and cross sector responsibilities, rights and responsibilities as disjointed and inefficient persons still more prominent administrative operation and management systems are not strong enough; on the supervision and restriction mechanism of administrative power is not perfect, phenomena such as misfeasance, malfeasance, corruption still exists. These issues directly affect the Government carry out their functions fully and rightly, to some extent, constraining economic and social development. "Li Qiang said.
Separately, in the 1980 of the 20th century began with the transformation of government functions as the core content of gradually slowing trend since the mid 90, and has even been reversed in some ways, Government to expand its powers become commonplace. Especially after 2008, with the southern ice, "5·12" earthquake and the global financial crisis, "the Government began to end up playing directly."
"This is a historic choice of last resort, but in this process, the Government's role in the allocation of resources is made larger, the resulting problem is overcapacity in 19 industries. "Song Shiming said. This is one reason government reforms need to continue to advance.
Institutional reforms should not be too frequent
Song Shiming said that current Government administrative system reform from the basic deployment, restructuring of the State Council have been settled, and projects, time requirements, the responsibility to the people, local administrative system reform is being implemented.
And reform should not be too frequently--30 years to of government reform, are for 5 years a times adjustment, previously has has views think, such too frequently, should oriented long-term; more because, after so more round reform, its marginal utility obviously descending, reform room and space has very small--hardly 25 a ministries on must than 15 a ministries good, also cannot thoroughly do ministries duties covers all area, and duties no cross.
Of course, in the long run, does not rule out future in some "separation" institutional reforms in the areas of the implementation is not in place--for example, salt and tobacco.
At one time there was a call for the establishment of Reform Commission, judging from the senior position, more inclined to encourage the development of think tanks for making consultation.
Li Qiang, and undo the merge ministries, "meaning not much, just a technical problem", it is important to transform government functions.
Because the function change involving the positioning of the Government, the Government told the people, Government and society, the relationship between Government and market, would first have to decide what the Government, the Government's border where, then what kind of body to dry, how many resources are needed. Otherwise, the institutions lack any basis.
In fact, in as early as 1988 that the Government reform, has proposed a "transformation of governmental functions". "But this reform just ' Government function transformation problems ', without touch, solve problems, and no substantive breakthrough--not until 10 years after the 1998 Government reform. "Song Shiming said.
Compared to 1998, the Government moves to reform the abolition of 10 ministries and commissions, hidden in the goal--the transformation of government functions – not too seriously. In contrast, 15 years after 2013, public opinion on the reform of government reform is expected in "a big fuss", the transformation of government functions has become a top priority.
So, to administrative examination and approval system reform as a breakthrough in this round transformation of government functions, then what would be the reform initiative?
Reform of monopoly industries is the transformation of government functions is the most difficult part
"Straighten out the relation between Government and market, reform of the administrative examination and approval system is only one hole. "Song Shiming said that the Central Government to cancel the right of approval and delegation of more than 1000, and is currently moving more than 200 items.
Even so, he still believes that the transformation of government functions in the future must also promote the reform of monopoly industries--creating a fair competitive environment, deepening the reform of resource products pricing and financial reform--play the price barometer in the allocation of resources, and manage local financing platforms.
In 1998 that turn one-time government reforms after the withdrawal of virtually all industry sectors of the economy, Premier Zhu Rongji also carried out a large-scale State-owned enterprise reform, and laid the basis for 10 China's rapid economic growth. However, after the 2008 central economic stimulus policy, State-owned enterprise reform not only does just that, instead relying on monopoly and rewarding policies in terms of land and capital advantages, "privatization," complained that continues to this day.
In an interview with this newspaper's scholars, reform of monopoly industries is the transformation of government functions is the most difficult part, but if you do not cross this step, it is impossible to completely straighten out relations between the Government and the market.
Resource products is essential to economic development, yet the price reform of this industry is not complete. Government remains firmly in control of water, electricity, basic pricing of resource products, such as oil and gas, coal, and some local governments investment when a bargaining chip. Therefore, also have to overcome the future transformation of government functions "the hills."
China's financial system has long been criticized, but due to its reform is risky, has been delayed. Along with the loan interest rate liberalization policy introduced this summer, Shanghai free trade plan in the currency market, human capital can be exchanged, relaxing private capital into the financial sector, financial reform are prized.
As for local financing platforms, is the depth of local government as an economy-oriented Government, typical forms of intervention in the market, and the overall objectives of the transformation of government functions is to promote government from economic development to public service-oriented Government in transition.
"As long as the control local financing platforms, then want to go all out and go fast, don't have that kind of money, it is rational. "Song Shiming said.
In addition, land, investment approval, capacity management, can also be considered to clarify the relation between Government and market in issues that must be resolved.
And apart from the Government should withdraw further from economic matters, transformation of government functions is also asking the Government to take in some areas supervisory duties, and ex post regulation and supervision before things change.
During the clarify and social relations, Li Qiang believes that first of all, the Government should withdraw some social affairs; secondly, it should foster social organizations grow.
Because the transformation of government functions requires the growth of the market economy on the basis of social organization. Otherwise, government functions have no way to go out--in society do not have to undertake, which made it difficult to achieve the Government's reform of the stated objectives. Which, in turn, supporting the reforms and the cultivation of social organizations and institutions are closely related.
Li Qiang said that the Government must be very clear, which is that the Government should provide public goods, which are not. "Not only is the Central, provincial, city, County, or even a small street Office, should be made clear that what is supposed, which are not supposed to."
Not just "Government reform"
"This term of the Government, I had specifically done research, meaning there is a change in China from 1980 to the present: 80 people will all public authorities-the party and Government, the people's Congress and the CPPCC, the judiciary is regarded by the Government, but now the Government only narrowly refers to the Executive branch. "Li Qiang said.
To straighten out the relationship between Government and market, Government and the community, close to the "Government reform"-institutional reform and the function change of the Executive Branch, it is far from enough, and must be expanded to clarify the overall authority, Executive, legislative and judicial branches--the ruling party--and the market.
政府改革30年：寻找公权力的边界
改革开放以来的30多年里，经历7轮政府改革，每一次重大战略变革都在政府改革——政府机构改革和职能转变——中得以体现：无论是党的工作中心转向经济建设、建立社会主义市场经济体制，还是加入世贸组织。
纵深来看，中国这30余年的政府改革，虽然每次针对的阶段性任务不同、虽有侧重点迥异，但一以贯之的主线是转变职能以促进经济增长。而其客观后果是，不断调整政府与市场的关系——从计划经济体制的全能型政府向政府与市场分化的过程，事实上也是公权力寻找边界的过程。
这也使政府改革成为建构现代国家的过程。现代国家的基本要义之一，即是公权力要有边界，其次是民主化和法治化。
而在中国，要完全厘清权力与市场的边界，仅有狭义的政府改革——以机构改革和政府职能转变为主要内容的行政体制改革——是不够的，其必然要扩展到执政党、司法体系等的改革。
2008年后政府在资源配置中的作用增大
从1982年启动改革开放后的首轮机构改革以来，中国在31年间共进行了7轮政府改革，虽然重点有时是机构改革，有时是政府职能转变，但一以贯之的主线是促进经济增长。
“这是30年间七次政府改革的规律之一，也是中国政府改革的‘逻辑起点’和‘历史起点’。”国务院政府职能转变专家组成员、国家行政学院教授宋世明说。
从7轮政府改革的主要背景来看，除了1982年第一次改革主要是政治背景——党的工作中心由政治转向经济建设、1988年改革是政治与经济双重背景外，其它的5次政府改革的主要背景都是经济因素。
这7轮政府改革，虽然每一次的成果不同——1982年改革开启了干部人事制度科学化、民主化、制度化的历程，1988年改革首次提出了“转变政府职能是机构改革的关键”，1993年改革明确了“行政体制改革的目的是适应建设社会主义市场经济体制的需要”，1998年改革消除了政企不分的组织基础，2003年改革开始关注公共监管，2008年改革开启了大部制探索——但整体来看，又有共性。
在北大政府管理学院教授李强看来，这几次政府改革促进了政府和单位职能的转变，剥离了政府的一些非公共职能，使政府向成为单纯行使公共权威、提供公共产品的机构转型，使企业、事业单位开始向单纯的经济或社会实体转变，不再承担全能主义政治基层组织的职能。
具体而言：第一，通过几次改革，政府直接参与经济活动、经营企业的规模与程度大大减低，绝大部分国务院部委都转变为主要提供公共产品的部门。尤其是2003年国务院机构改革，专门设立了国有资产监督管理委员会，监管国有资产。
“经过这次改革，中央政府提供公共产品与管理国有资产两方面的职能在制度上区分开来，换句话说，将政府作为公共权力的行使者与资本的所有者或产品的生产者两方面的角色区别开来。”李强解释道。
第二，在转变政府职能的同时，或者说在对原有政府部门做减法的同时，根据市场经济与市民社会发展的需求，增设了一些以提供某些领域公共产品为职能的政府机构，以解决所谓政府“缺位”的问题如安监局、食品药品监督委员会。
第三，通过几次税收制度的改革，公共财政制度的建立取得明显成效，公共权力的行使愈来愈主要依靠公共财政支持，较少依赖各种形式的收费。
第四，企业的改革取得明显成效。通过一系列对国有企业的分类改革，国有企业原来的单位制特征大为削弱，国有企业提供公共产品的职能大幅减少，逐步转变为能够按照市场经济原则参与市场经济活动的单纯的生产者。
然而，前后7轮、持续30余年的政府改革，并不意味着已经理清了政府与市场、政府与社会的关系。
“政府职能转变还不到位，对微观经济运行干预过多，社会管理和公共服务仍比较薄弱；部门职责交叉、权责脱节和效率不高的问题仍比较突出；行政运行和管理制度不够健全；对行政权力的监督制约机制还不完善，滥用职权、以权谋私、贪污腐败等现象仍然存在。这些问题直接影响政府全面正确履行职能，在一定程度上制约经济社会发展。”李强说。
另一方面，从20世纪80年代开始的以政府职能转变为核心内容的改革自90年代中期以来有逐步放缓的趋势，在某些方面甚至有所逆转，政府扩权成为普遍现象。尤其是在2008年以后，随着南方冰冻、“5·12”地震、全球金融危机的发生，“政府开始直接下场踢球”。
“这虽然是不得已的历史选择，但在此过程中，政府在资源配置中的作用变大了，产生的问题是19个行业产能过剩。”宋世明说。这也是政府改革需要继续推进的原因之一。
机构改革不宜过于频繁
宋世明分析认为，本届政府的行政体制改革从基本部署来看，国务院的机构改革已经尘埃落定，并且项目化、有时间要求、责任到人；地方行政体制改革正在落实。
而机构改革不宜过于频繁——30年来的政府改革，均为5年一次调整，此前已有观点认为，这样过于频繁，应着眼长远；更因为，经过这么多轮机构改革，其边际效用明显递减，改革余地和空间已经非常小——很难说25个部委就一定比15个部委好，也无法彻底做到部委职责涵盖所有领域，且职责没有交叉。
当然，长期来看，不排除未来会在一些“政企分开”贯彻执行不到位的领域进行机构改革——比如盐业、烟草。
而对于一度有人呼吁的设立改革委，从高层的表态来看，更倾向于鼓励发展智库以备决策咨询。
在李强看来，再撤销合并部委，“意义已经不会太大，只是技术性问题”，重要的是转变政府职能。
因为，职能转变涉及政府的定位，政府跟老百姓、政府跟社会、政府跟市场的关系，首先要决定政府该干什么，政府的边界在什么地方，然后才是用什么样的机构来干、需要多少资源。否则，机构设置缺乏依据。
事实上，早在1988年的那次政府改革中，就提出了“转变政府职能”。“但这次改革只是‘点了政府职能转变的题’，而没有破题、解题，更无实质性的突破——这要等到10年之后的1998年政府改革。”宋世明说。
比起1998年政府改革撤销10部委的大动作，隐藏在其后的目标——政府职能转变——并不太为人重视。相反，15年后的2013年，当舆论预计政府改革会在机构改革上“大做文章”时，政府职能转变却成了重中之重。
那么，以行政审批制度改革作为突破口的这轮政府职能转变，接下来还会有哪些改革举措？
垄断行业改革是政府职能转变最难部分
“理顺政府和市场关系方面，仅行政审批制度改革这一个点就深不见底。”宋世明说，中央政府要取消和下放的1000多项审批权，目前也才动了200多项。
即便如此，他仍认为，未来政府职能转变还必须推进垄断行业改革——创造公平竞争的环境，深化资源性产品价格改革和金融体制改革——发挥价格在资源配置中风向标作用，并管住地方融资平台。
在1998年的那轮政府改革一次性撤销几乎所有的工业专业经济部门后，朱镕基总理任内还进行了大规模的国企改革，并奠定了其后10年中国经济高速增长的基础。然而，在2008年后的中央经济刺激政策下，国企改革不仅止步不前，反而凭借垄断地位以及在土地和资金方面的政策优势攻城略地，“国退民进”的抱怨持续至今。
在接受本报采访的学者看来，垄断行业改革是政府职能转变最难的部分，但如果不跨出这一步，也就不可能彻底理顺政府与市场的关系。
资源性产品是经济发展的基本要素，然而这一行业的价格改革至今并未完成。政府仍牢牢掌控着水、电、油气、煤等基础性资源产品定价，并成为一些地方政府招商引资时的谈判筹码。因此，这也成为未来政府职能转变中必须攻克的“山头”。
中国的金融体制被诟病已久，但因其改革风险巨大，一直被拖延。随着今年夏天贷款利率市场化政策的出台，上海自贸区计划在汇率市场化、人民资本项下可兑换、放宽民资进入金融业，金融改革被寄予厚望。
至于地方融资平台，是中国地方政府作为经济建设型政府、深度介入市场的典型形式，而政府职能转变的总体目标即是推动政府由经济建设型向公共服务型政府转型。
“只要管住了地方融资平台，地方再想怎么大干快上，也没有那么多钱，也就理性了。”宋世明说。
此外，土地、投资审批、产能指标管理，也被视为厘清政府与市场关系中必须要解决的问题。
而除了政府应进一步从一些经济事务中退出，政府职能转变也要求政府在一些领域负起监管职责，并从事前监管向事中、事后监管转变。
在厘清政府与社会关系方面，李强认为，首先政府应从一些社会事务中退出；其次，应培育社会组织成长。
因为，政府职能的转变要求在市场经济发展基础上的社会组织的成长。否则，政府职能没有办法转出去——社会中没有承接者，这就很难实现政府机构改革的既定目标。而这又与事业单位的配套改革和社会组织的培育密切相关。
李强说，政府一定要非常清晰，哪些是政府应该提供的公共产品、哪些不是。“不仅是中央，而且省、市、县，甚至一个小小的街道办，都应该明确，哪些事是应该管的，哪些是不应该管的”。
不应只是“政府改革”
“政府这个词，我曾经专门做过研究，其含义在中国从1980年代到现在有变化：80年代人们将所有公权力机关——党、政、人大、政协、司法机关都视为政府，但现在政府只是狭义的指行政部门。”李强说。
因此要理顺政府与市场、政府与社会的关系，紧靠“政府改革”——行政部门的机构改革和职能转变，远远不够，而必须扩展至厘清整体公权力机构——执政党、行政、立法和司法机构——与市场的关系。
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