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The author:(作者)左published in(发表于) 2013/11/12 0:14:17 Professor of the National School of administration
To prevent interception of the Central delegation of approval authority
In previous government reforms, the Central Government will bear the brunt, most of local government reform as the Central Government reform logical results. In fact, since local governments are directly facing the market, social, civic, and the effectiveness of the reforms determines the success or failure of the reform of the Government as a whole.
On August 27, Member of the Standing Committee has discussed and approved the transformation of local government function and reform programme, local government reform high on the agenda.
National administrative college public management research department Professor Song Shiming in accept 21st century economic reported reporter interview Shi said, place whether will interception Central canceled, and decentralization of approval right and place obtained approval right Hou how negative up regulatory responsibility, is this place government functions shift and reform in the of two big key problem, and local government company of this a inertia short time within can change is is reform success of maximum challenge.
"Local financing platforms must be kept"
Of the 21st century: Central held a special video conference of local government function transformation and system reform, how to understand the background of local government function transformation and system reform?
Song Shiming: after each Central Government institutional reforms, where appropriate reforms. The transformation of local government function and reform, institutional reform and transformation of the function of a natural continuation of the Central Government, is the relationship between part I and part II of the Government reforms.
First, because China is a unitary State, supporting government agencies must be well-coordinated. Therefore, only the Central reform is not reform is out of the place. In particular reform of the administrative examination and approval system, and involves a lot of decentralization. This raises the question: where would retain delegated by the central authority? Is it reduces the opportunities for corruption, following increased opportunities for corruption? This is the people are most concerned about the problem. Don't get this problem resolved, the entire reform of government functions would be lost.
Second, as the reform of the administrative examination and approval system, strengthen supervision of local government responsibilities grow. Because local governments received relatively more after the approval authority, and will hold a corresponding reform, such as Cancel, decentralization, transferring to the social intermediary organizations, but it is the means, the key is to strengthen supervision. Because, who approved, who monitored local government approval has no oversight responsibility in the past, now place this power, it would have to assume the responsibility of monitoring.
Of the 21st century: the transformation of government functions and institutional reform, what are your biggest challenges?
Song Shiming: challenges there are three points: first, the inertia of local government companies hard twist coming anytime soon; second, decentralization, trapped there is still a risk; and, third, strengthen the monitoring responsibility is very heavy.
Of the 21st century: you have just talked about, acting as a watch-duty is one of the focus of the local government reform, but my view is that the development of China's local governments are highly impulsive Government, after the local Government to undertake many of the delegated authority of the Central Government, are more likely to be impulses can better work with its development, in terms of development put no brakes, and not assume the responsibility of monitoring. In other words, local Governments undertake central approving authority, it is possible to "a place like the" how to solve it?
Song Shiming: is to have three major constraints. First, building a service-oriented Government have to be down to Earth. The past, China's local governments are to a large extent is an economy-oriented Government, transforming government functions is transferred from the economic-oriented government service Government-the basic direction in three sentences: safeguard social fairness and justice, to create a favorable development environment, providing quality and equitable services. If the rhetoric is building a service-oriented Government, or economic development Government thing to do, it would have been difficult.
Second, baton cadres should truly meet the needs of building a service-oriented Government. If the baton really points to build a service-oriented Government, disobeying the baton-oriented leadership is one of the few.
Third, local financing platforms must be kept. As long as the control of local financing platforms, and then want to go all out and go fast, don't have that kind of money – money for education, health, medical-driven projects, local people would not work, local governments are rational.
"Most of the reforms is the hardest bone, should not shy away from"
Of the 21st century: overall, the decentralization of government institutional reform and function change seems to have been a central authority, can be understood as a "weak central and strong places" guide here?
Song Shiming: not to feel that way. The transformation of government functions is mainly four areas: transfer of functions, integration of functions, functions, functions strengthened. In particular, one delegation of investment approval procedures, the second is approval of decentralized production and business activities, and the third is earmarked transfers reduction – reduce earmarked transfers cannot solve the financial power and authority to issue that matches. Say 1000, 10,000, it's also functional decentralization, mobilize the enthusiasm of local governments, far reach "weakening Central, fortified place" enough.
Of the 21st century: the local government reform, the view was expressed that, should streamline the Government level, adjusting the Administrative Division, what do you think?
Song Shiming: the Central Government has put forward, optimized administrative level and administrative design, where there are conditions to explore the provinces directly lead the counties. Prefecture-level city in the civil service, some 1.5 million people, if provinces directly lead the counties launched after removal of prefecture-level cities, which lost 1.5 million establishment. But on the specific programmes, hasn't seen the deployment of such a reform.
Of the 21st century: a similar reform in Shunde, Guangdong province where most of the system will be in full swing?
Song Shiming: Guangdong Shunde system with party and Government offices to highlight the characteristics of large departments has aroused concern. The specific approach is to withdraw 41 of party and Government departments in the past, government system integrated set a total of 16 departments, party departments 6, 10 government departments, reform is very large. Reform of Shunde's reform, the parties should cherish.
Central has been clear, "combining the local reality, steadily promote sector reforms" and that "Governments at all levels should proceed from the actual work, bold innovation, in areas of larger, more integrated structures. "Judging from these expressions, central file is not simply promoting a single mode. But also plays an important central file information: integrated institutional responses localities and departments should sum up experience, deepen reform, explore effective operating mechanism of the comprehensive set of perfect bodies. To explore most of the system of Shunde, coinciding with the time. Should be based on a central file continue to straighten out-part running mechanism for China's local-part exploration of a better experience.
Of the 21st century: in addition to the Central currently deployed to promote the reform and future transformation of local government function and reform exploration of what should be done?
Song Shiming: future, three aspects of reform of the administrative system reform should also explore: first, all problems of administrative reform, most of the system reform is the hardest bones, should not shy away from. Those things are all willing to explore most of the system where the Central must be clear support.
Second, encourage micro innovation. Some innovations are not necessarily from a national perspective, but from the solutions to local problems, the central authorities should hold the magnifying glass to appreciate, promote local innovation, encourage local micro-innovations.
Third, the reform of the cadre and personnel system should provide support for administrative reform. The recent administrative reform of the civil service management support is not enough. The Civil Service Act on the classification of the civil service management have been clearer rules. "Only listen to the sound of steps, bujianrenxialai" implementation of the civil service classification management, can't wait, it's time.
要防止地方截留中央下放的审批权
以往历次政府改革中，中央政府均首当其冲，地方政府改革大多作为中央政府改革的逻辑结果。实际上，由于地方政府直接面对市场、社会、公民，其改革的成效决定着整个政府改革的成败。
8月27日的中央政治局常委会讨论并通过了《地方政府职能转变与机构改革方案》，地方政府改革提上了议事日程。
国家行政学院公共管理教研部教授宋世明在接受21世纪经济报道记者专访时说，地方是否会截留中央取消、下放的审批权和地方获得审批权后如何负起监管责任，是此次地方政府职能转变和机构改革中的两大关键问题，而地方政府公司化这一惯性短时间之内能否改变则是改革成败的最大挑战。
“地方融资平台必须管住”
《21世纪》：中央专门召开地方政府职能转变与机构改革电视电话会议，如何理解这次地方政府职能转变与机构改革的背景？
宋世明：每一次中央政府机构改革之后，地方也要进行相应的改革。这次地方政府职能转变和机构改革，也是中央政府机构改革和职能转变的自然延续，是政府改革的上篇和下篇的关系。
第一，因为中国是单一制国家，一些政府机构必须上下配套才能运转协调。所以，只有中央的改革没有地方的改革肯定不行。尤其是这次行政审批制度改革，涉及到很多权力下放。这就产生一个问题：地方是否会截留中央下放的权力？是不是上面减少了腐败的机会，下面反而增加了腐败的机会？这是群众最关心的问题。不把这个问题解决，这次整个政府职能改革就会付诸东流。
第二，随着行政审批制度改革，地方政府加强监管的责任越来越重。因为地方政府获得了相对更多的审批权之后，也要进行相应的改革，如取消、下放、转移给社会中介组织，但这都是手段，关键还是要加强监管。因为，谁审批、谁监管，过去地方政府不审批也就没有监管这个责任，现在给了地方这个权力，它就要负起监管的责任。
《21世纪》：这次地方政府职能转变和机构改革，最大的挑战是什么？
宋世明：挑战有三点：第一，地方政府公司化这个惯性短时间之内拧过来有难度；第二，这次权力下放，地方截留的风险依然存在；第三，加强监管的责任很重。
《21世纪》：你刚才谈到，负起监管职责是这次地方政府改革的重点之一，但我的看法是，中国地方政府是具有高度发展冲动的政府，地方政府承接很多中央政府下放的权力后，更有可能是可以更好的配合其发展冲动、在发展方面收不了闸，而不是负起监管的责任。换言之，地方政府承接中央审批权下放，有可能“一放就乱”，如何解决？
宋世明：主要是要有三个约束。第一，建设服务型政府必须是落到实处。过去，中国的地方政府很大程度上就是一个经济建设型政府，转变政府职能就是从经济建设型政府转到服务型政府——基本方向就三句话：维护社会的公平正义，创造良好发展环境，提供优质公平服务。如果口头上是建设服务型政府，干的还是经济建设型政府的事，那就难了。
第二，干部考核指挥棒应真正适应建设服务型政府的需求。如果指挥棒是真心指向建设服务型政府，不服从指挥棒导向的领导应是少数。
第三，地方融资平台必须管住。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——想把教育、卫生、医疗那些钱拿下来驱动项目，当地百姓也不干，地方政府也就理性了。
“大部制改革是最硬的骨头，不应回避”
《21世纪》：整体来看，政府机构改革和职能转变似乎是中央下放事权，可以理解为是“弱中央、强地方”的导向吗？
宋世明：不能这么理解。政府职能转变主要是四个方面的内容：职能转移、职能下放、职能整合、职能加强。具体而言，一是下放投资审批事项，二是下放生产经营活动审批事项，三是减少专项转移支付——减少专项转移支付解决不了财权和事权相匹配的问题。说一千道一万，这也只是职能下放、调动地方政府的积极性，远远到不了“弱化中央、强化地方”的程度。
《21世纪》：对于地方政府改革，一直有观点认为，应该精简政府层级、调整行政区划，你怎么看？
宋世明：中央政府已经提出来了，优化行政层级和行政区划设计，有条件的地方探索省直管县。地级市的公务员，大约有150万人，如果省直管县推行，撤销地级市之后，这150万个编制就减掉了。但从具体方案来看，现在还没有看到部署这一改革。
《21世纪》：类似于广东顺德的地方大部制改革，会全面推开吗？
宋世明：广东顺德以党政合署为突出特点的大部门体制，引起社会各方关注。其具体做法是，撤销过去的41个党政部门，党政系统共综合设置了16个工作部门，其中党委部门6个，政府部门10个，改革力度很大。对顺德的改革大部制改革探索，各方应倍加珍惜。
中央文件已明确，“结合地方实际，稳步推进大部门制改革”，“各级政府要从实际工作出发，大胆创新，在更大范围、更多领域综合设置机构。”从这些表述来看，中央文件没有单纯推广单一模式。但中央文件中也有一个重要信息：实行综合设置机构的地方和部门要总结经验，不断深化改革，探索完善综合设置机构的有效运行机制。这对先行探索大部制的顺德来说倒是恰逢其时。应根据中央文件精神继续理顺大部制运行机制，为中国地方大部制探索出更好的经验。
《21世纪》：除了中央现在已经部署推进的改革，未来地方政府的职能转变和机构改革还应进行哪些探索？
宋世明：未来，地方行政体制改革还应进行三个方面的改革探索：第一，行政体制改革的所有问题当中，大部制改革是最硬的骨头，不应回避。那些条件具备，愿意探索大部制的地方，中央千万要明确支持。
第二，鼓励微观创新。地方有一些创新不一定从全国角度出发，而是从解决地方的问题出发，中央应该拿着放大镜去欣赏、提升地方的创新，鼓励地方的微观创新。
第三，干部人事制度改革应该为行政体制改革提供支撑。这几年公务员管理对行政体制改革的支撑不够。《公务员法》中关于公务员分类管理，已经有比较清晰的规定。可是“只听楼梯响，不见人下来”，落实公务员分类管理，不能再等了，是时候了。
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