中国区域经济政策历史演变与制度变迁
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摘要
我国实施区域经济政策已有近六十年的历史,对其进行概括总结和理论升华已成为当前刻不容缓的任务。
首先,系统地梳理了我国区域经济政策的历史演变和制度变迁。对我国区域格局的初始条件研究发现:帝国主义列强的掠夺和侵略加剧了区域格局的不平衡。在计划经济时期,区域经济政策以均衡为导向,中央政府通过指令性计划的方式来实施,所以工具比较单一,主要就是中央政府对地方的转移支付和直接投资。在转型中,区域经济政策以非均衡战略为导向,表现为以效率为导向的优先发展沿海地区。在转型后期,划分为效率优先兼顾公平和注重公平为导向的两个阶段,前一阶段,重点能够使内陆地区具有与东部均等的发展机会;后一阶段中央政府加大了对中西部地区的支持力度。
其次,通过对制度变迁对各个时期实施的区域经济政策绩效影响来探索二者之间的关系。改革开放前,虽然实施了均衡发展战略,但是并没有达到均衡的目的,差距没有缩小反而扩大了。改革开放后,实施了非均衡的发展战略,但是并没有在降低中西部地区的发展为前提,所以曾一度出现差距缩小的现象。后来实施的一系列行之有效的积极区域政策对不断扩大的差距起到了很好的抑制作用,近期地区差距出现了缩小迹象。
再次,构建一个具有空间要素的制度变迁分析框架,区域经济政策通过行政区经济的“M”型组织结构的传导机制对制度变迁产生了深远的作用。改革开放后,典型的“M”型组织逐步建立,区域政策在制度创新和扩散的过程中发挥了积极的作用。随着社会主义市场经济制度的不断完善,区域政策的目标导向、实现方式和作用机制都发生了深刻的变化。
最后,对我国未来的区域政策和制度变迁提出了建立规范地方政府竞争的制度环境、加快各级地方政府的职能转变、建立区域经济协调机构、扩展区域政策范围、建立合理的政策工具系统等五个对策建议。
It's high time to summary and theorize distillation for Regional economic policy for nearly 60 years in China at present. First of all,we systematically review the historical evolution of regional economic policy in China and institutional change.
After studying the initial conditions of modern China for the regional pattern, we found that the exploitation and aggression of imperialist powers intensified the pattern of regional imbalance. In the planned economy period, regional economic policy is balanced-oriented; the central government through command approach to prescribe the implementation of the plan; so the single tool for comparison is mainly the central government transfer payments to local and direct investment. In the restructuring period, the strategy of regional economic policies is non-balanced-oriented—the efficiency-oriented preferential development of coastal areas. In the latter part of transition, we divide into the two phases : giving priority to efficiency while giving consideration to fairness and equity-oriented, the former stage focuses that the east and the inland areas have equal opportunities of development; the later stage focuses that the central government has increased the support for the central-western regions.
Secondly, the institutional change impacts the performance of regional economic policy evaluation among the various periods. Before the reform and opening up, implementing the balanced development strategy, we did not achieve the balanced-objective, but the gap has not narrowed but widened. After the reform and opening up, implementing non-balanced development strategy, we did not reduce the central-western regions development as premise, so once appeared the phenomenon of narrowing the gap. Later, implementing a series of effective and active regional policy, it played a very good effect in the ever-widening gap; the recent regional disparity has narrowed signs.
Thirdly, building the framework born space elements of institutional change, the regional economic policies adopted by the SAR economy "M"-type organizational structure of the transmission mechanism of the system have far-reaching changes in the role. After the reform and opening up, typical of the "M"-type organizations gradual establishment of regional policy and institutional innovation in the process of proliferation played a positive role. As the socialist market economic system continuously improved, regional policy objectives, orientation, the approaches and mechanisms have undergone profound changes.
Finally, we point out five suggestions for the regional policy and institutional changes in China in the near future: establish a institutional environment to standardized the local government competitive; speed up changes in the functions of local governments at all levels; establish institutions of coordinated regional economic policy; expand the scope of regional policy, establish a rational system of policy tools.
首先,系统地梳理了我国区域经济政策的历史演变和制度变迁。对我国区域格局的初始条件研究发现:帝国主义列强的掠夺和侵略加剧了区域格局的不平衡。在计划经济时期,区域经济政策以均衡为导向,中央政府通过指令性计划的方式来实施,所以工具比较单一,主要就是中央政府对地方的转移支付和直接投资。在转型中,区域经济政策以非均衡战略为导向,表现为以效率为导向的优先发展沿海地区。在转型后期,划分为效率优先兼顾公平和注重公平为导向的两个阶段,前一阶段,重点能够使内陆地区具有与东部均等的发展机会;后一阶段中央政府加大了对中西部地区的支持力度。
其次,通过对制度变迁对各个时期实施的区域经济政策绩效影响来探索二者之间的关系。改革开放前,虽然实施了均衡发展战略,但是并没有达到均衡的目的,差距没有缩小反而扩大了。改革开放后,实施了非均衡的发展战略,但是并没有在降低中西部地区的发展为前提,所以曾一度出现差距缩小的现象。后来实施的一系列行之有效的积极区域政策对不断扩大的差距起到了很好的抑制作用,近期地区差距出现了缩小迹象。
再次,构建一个具有空间要素的制度变迁分析框架,区域经济政策通过行政区经济的“M”型组织结构的传导机制对制度变迁产生了深远的作用。改革开放后,典型的“M”型组织逐步建立,区域政策在制度创新和扩散的过程中发挥了积极的作用。随着社会主义市场经济制度的不断完善,区域政策的目标导向、实现方式和作用机制都发生了深刻的变化。
最后,对我国未来的区域政策和制度变迁提出了建立规范地方政府竞争的制度环境、加快各级地方政府的职能转变、建立区域经济协调机构、扩展区域政策范围、建立合理的政策工具系统等五个对策建议。
It's high time to summary and theorize distillation for Regional economic policy for nearly 60 years in China at present. First of all,we systematically review the historical evolution of regional economic policy in China and institutional change.
After studying the initial conditions of modern China for the regional pattern, we found that the exploitation and aggression of imperialist powers intensified the pattern of regional imbalance. In the planned economy period, regional economic policy is balanced-oriented; the central government through command approach to prescribe the implementation of the plan; so the single tool for comparison is mainly the central government transfer payments to local and direct investment. In the restructuring period, the strategy of regional economic policies is non-balanced-oriented—the efficiency-oriented preferential development of coastal areas. In the latter part of transition, we divide into the two phases : giving priority to efficiency while giving consideration to fairness and equity-oriented, the former stage focuses that the east and the inland areas have equal opportunities of development; the later stage focuses that the central government has increased the support for the central-western regions.
Secondly, the institutional change impacts the performance of regional economic policy evaluation among the various periods. Before the reform and opening up, implementing the balanced development strategy, we did not achieve the balanced-objective, but the gap has not narrowed but widened. After the reform and opening up, implementing non-balanced development strategy, we did not reduce the central-western regions development as premise, so once appeared the phenomenon of narrowing the gap. Later, implementing a series of effective and active regional policy, it played a very good effect in the ever-widening gap; the recent regional disparity has narrowed signs.
Thirdly, building the framework born space elements of institutional change, the regional economic policies adopted by the SAR economy "M"-type organizational structure of the transmission mechanism of the system have far-reaching changes in the role. After the reform and opening up, typical of the "M"-type organizations gradual establishment of regional policy and institutional innovation in the process of proliferation played a positive role. As the socialist market economic system continuously improved, regional policy objectives, orientation, the approaches and mechanisms have undergone profound changes.
Finally, we point out five suggestions for the regional policy and institutional changes in China in the near future: establish a institutional environment to standardized the local government competitive; speed up changes in the functions of local governments at all levels; establish institutions of coordinated regional economic policy; expand the scope of regional policy, establish a rational system of policy tools.
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