强县扩权促进县域经济发展问题研究
|
摘要
党的十六大明确提出了“壮大县域经济”的发展要求。近年来,发展县域经济得到了前所未有的重视,传统的“市管县”体制阻碍了县域经济快速发展的步伐,各省都在积极寻求县域经济快速发展的道路。浙江省走出了第一步,它的“强县扩权”改革在实践上极大地促进了县域经济发展,其成功实践,使得强县扩权成为当前诸多省市寻求县域经济腾飞的一条有效途径。
在浙江省之后,全国有24个省市在扩大县(市)管理权限方面进行了尝试,并取得了比较明显的效果。2007年5月,安徽省也开始了强县扩权的尝试,扩权后,增强了安徽省扩权县经济发展的自主性和统筹计划能力,明显提高了行政效率,有力推进了县域经济的快速持续发展。
本文围绕强县扩权促进县域经济发展问题这一主线,以集权分权和授权理论、区域非均衡发展理论、制度变迁理论为理论基础,综合运用实证与规范分析、定性与定量方法,针对当前正在进行的“强县扩权”改革,从理论和实践两方面,分析总结出强县扩权改革对于县域经济的发展具有很明显的促进作用,有必要进一步深化改革,分析出改革也存在很多问题,基于这些提出相应的对策建议。
(1)强县扩权改革是一种体制创新,市管县体制的弊端是其产生的直接动因。在市管县体制下,县级政府由于缺乏社会管理权而使得发展县域经济缺乏主动性和积极性。
(2)很多的实践证明,强县扩权改革是促进县域经济发展的一条有效途径,扩权对县域经济发展必然存在内在运行机理,本文假定可以通过财权、事权的扩大带来县域经济发展来衡量这些效应,为下面的分析提供理论支持。
(3)机理效应的分析只是从原理上阐述了强县扩权能够对县域经济发展有促进作用,本文接下来从各省的实践中梳理出强县扩权实施中的采用的各种模式,为分析安徽省的强县扩权改革提供实践基础。
(4)为验证强县扩权促进县域经济发展理论,结合安徽省正在进行的强县扩权改革进行了案例分析。分析得出,扩权改革成效明显,激发了县域经济发展活力,促进县级政府的体制创新,改善了经济发展的软环境等,但是在研究中也发现存在亟需解决的各种问题：权利下放政策有待进一步落实完善,公众参与缺失、缺乏必要的权利监督制约机制和市县的协调配合不够等。这些问题的解决需要提高对扩权改革的认识,扩大扩权力度和切实落实已有的扩权政策,完善监督约束机制和协调市县之间的关系。
强县扩权改革不只是一项扩权改革,它的发展趋势是进一步精简机构,减少行政层级、提高行政效能,实行“省管县”代替“市管县”。核心目的在于促进县域经济发展,富民强省、留利于县,提高人民的生活水平,促进城乡一体化发展。
Sixteenth National Congress of the Communist Party of China explicitly put forward developing the County Economy. In recent years, the development of county economic has been paid unprecedented attention, the traditional city control county system hindered the pace of rapid development of county economy, and the provinces are actively to seek the good way of economic development. Zhejiang Province started the first step, its County Authority reform in practice greatly promoted the development of county economy, because of its successful practice, County Authority has become an effective way that many provinces and cities would like to find.
After Zhejiang Province, the country has 24 provinces and cities has been tried the expansion of the county (city) administrative rights and made remarkable results. May 2007, Anhui Province started the County Authority, after that, it increased economic development in Anhui, expanded their power and autonomy of the county and coordinating planning capabilities, significantly improved administrative efficiency, effectively promoted the county's economy rapid and sustainable development.
This paper flowers the clue of the County Authority for economic development, based on the centralization, decentralization and authorization theory, regional non-balanced development theory, and institutional change theory, comprehensive use of empirical and normative analysis, qualitative and quantitative methods. In light of the "County Authority" reform, the paper summarizes the reform obviously promote the county's economic development both in theory and practice. It needs to further develop. There are also many problems, based on these, propose suggestions.
(1)County Authority is an institutional innovation, the abuses of City Managing County is the direct result of its formation. Under the City Managing County, the county government management makes the lack of social economic development in counties and makes the lack of initiative and enthusiasm.
(2) A lot of practice proved that the reform of the County Authority reform and county economic development is an effective way to promote county economic development. There be must exist inner operation mechanism of expanding their power on the county's economic development. This article provides theoretical support for the following analysis on the basic of assumes that we can measure these effects through the expansion of finance rights and powers to bring economic development to the County.
(3) Analysis of mechanism of effect is just explained the County Authority can promote economic development on theory. As practical basis, this article continues summarizes the various models from the provinces practices for the analysis of the County Authority Reform in Anhui Province.
(4) To verify the theory of County Authority promote county economic development, it analyzes the County Authority reform in Anhui Province as a case study. The reform obtained success, it stimulates the county vitality and promotes county government's system innovation, improves the economic development of the soft environment and so on, in research also found that there are many problems:decentralization should be further improved, lack of public participation, lack of supervision and control mechanisms and inadequate coordination between city and county. These problems need to raise awareness of enlarging the authority reform, to expand the degree of expansion of power and to make certain about existing policies, to improve supervision and restriction mechanism and to coordinate between cities and counties.
County Authority Reform is not just an extended tenure reform, and its development trend is to further streamline the organization and reduce the administrative level, to improve administrative efficiency and Province Control Counties instead of City Control County. The core purpose is to promote the county's economic development, enriching province and remain conducive to the county to raise the standard of living, speed up the integration of urban and rural development.
在浙江省之后,全国有24个省市在扩大县(市)管理权限方面进行了尝试,并取得了比较明显的效果。2007年5月,安徽省也开始了强县扩权的尝试,扩权后,增强了安徽省扩权县经济发展的自主性和统筹计划能力,明显提高了行政效率,有力推进了县域经济的快速持续发展。
本文围绕强县扩权促进县域经济发展问题这一主线,以集权分权和授权理论、区域非均衡发展理论、制度变迁理论为理论基础,综合运用实证与规范分析、定性与定量方法,针对当前正在进行的“强县扩权”改革,从理论和实践两方面,分析总结出强县扩权改革对于县域经济的发展具有很明显的促进作用,有必要进一步深化改革,分析出改革也存在很多问题,基于这些提出相应的对策建议。
(1)强县扩权改革是一种体制创新,市管县体制的弊端是其产生的直接动因。在市管县体制下,县级政府由于缺乏社会管理权而使得发展县域经济缺乏主动性和积极性。
(2)很多的实践证明,强县扩权改革是促进县域经济发展的一条有效途径,扩权对县域经济发展必然存在内在运行机理,本文假定可以通过财权、事权的扩大带来县域经济发展来衡量这些效应,为下面的分析提供理论支持。
(3)机理效应的分析只是从原理上阐述了强县扩权能够对县域经济发展有促进作用,本文接下来从各省的实践中梳理出强县扩权实施中的采用的各种模式,为分析安徽省的强县扩权改革提供实践基础。
(4)为验证强县扩权促进县域经济发展理论,结合安徽省正在进行的强县扩权改革进行了案例分析。分析得出,扩权改革成效明显,激发了县域经济发展活力,促进县级政府的体制创新,改善了经济发展的软环境等,但是在研究中也发现存在亟需解决的各种问题：权利下放政策有待进一步落实完善,公众参与缺失、缺乏必要的权利监督制约机制和市县的协调配合不够等。这些问题的解决需要提高对扩权改革的认识,扩大扩权力度和切实落实已有的扩权政策,完善监督约束机制和协调市县之间的关系。
强县扩权改革不只是一项扩权改革,它的发展趋势是进一步精简机构,减少行政层级、提高行政效能,实行“省管县”代替“市管县”。核心目的在于促进县域经济发展,富民强省、留利于县,提高人民的生活水平,促进城乡一体化发展。
Sixteenth National Congress of the Communist Party of China explicitly put forward developing the County Economy. In recent years, the development of county economic has been paid unprecedented attention, the traditional city control county system hindered the pace of rapid development of county economy, and the provinces are actively to seek the good way of economic development. Zhejiang Province started the first step, its County Authority reform in practice greatly promoted the development of county economy, because of its successful practice, County Authority has become an effective way that many provinces and cities would like to find.
After Zhejiang Province, the country has 24 provinces and cities has been tried the expansion of the county (city) administrative rights and made remarkable results. May 2007, Anhui Province started the County Authority, after that, it increased economic development in Anhui, expanded their power and autonomy of the county and coordinating planning capabilities, significantly improved administrative efficiency, effectively promoted the county's economy rapid and sustainable development.
This paper flowers the clue of the County Authority for economic development, based on the centralization, decentralization and authorization theory, regional non-balanced development theory, and institutional change theory, comprehensive use of empirical and normative analysis, qualitative and quantitative methods. In light of the "County Authority" reform, the paper summarizes the reform obviously promote the county's economic development both in theory and practice. It needs to further develop. There are also many problems, based on these, propose suggestions.
(1)County Authority is an institutional innovation, the abuses of City Managing County is the direct result of its formation. Under the City Managing County, the county government management makes the lack of social economic development in counties and makes the lack of initiative and enthusiasm.
(2) A lot of practice proved that the reform of the County Authority reform and county economic development is an effective way to promote county economic development. There be must exist inner operation mechanism of expanding their power on the county's economic development. This article provides theoretical support for the following analysis on the basic of assumes that we can measure these effects through the expansion of finance rights and powers to bring economic development to the County.
(3) Analysis of mechanism of effect is just explained the County Authority can promote economic development on theory. As practical basis, this article continues summarizes the various models from the provinces practices for the analysis of the County Authority Reform in Anhui Province.
(4) To verify the theory of County Authority promote county economic development, it analyzes the County Authority reform in Anhui Province as a case study. The reform obtained success, it stimulates the county vitality and promotes county government's system innovation, improves the economic development of the soft environment and so on, in research also found that there are many problems:decentralization should be further improved, lack of public participation, lack of supervision and control mechanisms and inadequate coordination between city and county. These problems need to raise awareness of enlarging the authority reform, to expand the degree of expansion of power and to make certain about existing policies, to improve supervision and restriction mechanism and to coordinate between cities and counties.
County Authority Reform is not just an extended tenure reform, and its development trend is to further streamline the organization and reduce the administrative level, to improve administrative efficiency and Province Control Counties instead of City Control County. The core purpose is to promote the county's economic development, enriching province and remain conducive to the county to raise the standard of living, speed up the integration of urban and rural development.
引文
[1]史小红.强县扩权促进城乡一体化发展的机理与效应研究[D].开封：河南大学.2009.
[2]刘芳.河南强县扩权进程中的问题与对策研究[D].郑州：河南农业大学.2009.
[3]张春阳.强县扩权新突破—浙江义乌市扩权改革的思考[D].济南：山东师范大学.2008.
[4]沈军.“强县扩权”—历史演义的必然结果[J].《经济研究导刊》,2008(13).
[5]孙学玉.“扩权强县”增强县域经济发展活力[J].《理论学习》,2007(2).
[6]龚琦,付妮嘉,王雅鹏.湖北省强县扩权效果分析[J].华中农业大学学报(社会科学版),2007(1).
[7]沙虎居.对浙江“省管县”体制和强县扩权的解析[J].《科学决策》,2009(4).
[8]张占斌.政府层级改革与省直管县现实路径研究[J].《经济与管理研究》,2007(4)
[9]周明生,李猛.强县扩权促进区域中心城市发展的思考[J].《经济探讨》,2007(2).
[10]孙学玉.县扩权与省直管县(市)的可行性分析[J].《中国行政管理》,2007(6).
[11]王仕军,冯春.省管县体制改革：实践与理论的理性推进[J].《决策》,2008(4).
[12]温如春.强县扩权与湖北县域经济发展[J].《商业时代》,2007(32).
[13]钟大辉.产业集群推动县域经济发展研究[J].吉林农业科技学院学报,2009(2).
[14]许经勇.稳步推进扩权强县改革试点,不断增强县域经济发展活力[J].《福建理论学习》,2009(7).
[15]董立仁.稳妥推进省管县体制改革[J].《党政干部论坛》,2009(7).
[16]孙学玉.我国强县扩权实践模式的案例分析[J].《学海》,2008(1).
[17]郑吉萍.县域扩权——行政管理体制改革的制度创新[J].《行政与法》,2007(4).
[18]范方志,汤志刚.政府间纵向分权的契约性质——以浙江强县扩权、强镇扩权为例[J].《财经问题研究》,2007(11).
[19]许经勇.壮大县域经济的重要途径：“强县扩权”与“强镇扩权”[J].《新观察》,2009(4).
[20]邹惠艳,傅光明.推行省直管县财政体制刍论——关于浙江、安徽、湖北的实证研究[J].《现代经济探讨》,2006(11).
[21]甘行琼.省管县代替市管县的政治经济学[J].《财政研究》,2005.
[22]印幸福.借鉴美国经验,发展县域经济[J].《江苏经济》,2002(10).
[23]贺海峰.安徽2008县域经济考核解析[J].《决策》,2009(6).
[24]张占斌,李伟.百强县的共同经验是什么[J].《人民论坛》,2007(9).
[25](美)文森特·奥斯特洛姆,罗伯特·比什,艾莉诺·奥斯特罗姆.美国地方政府[M],北京：北京大学出版社,2004.
[26]孙柏瑛.当代地方治理,面向二十一世纪的挑战[M],北京：中国人民大学出版社,2004.
[27]刘君德,贺曲夫,胡德.论“强县扩权”与政区体制改革[J].杭州师范学院学报(社会科学版)2006(11).
[28]孙学玉.强县扩权与市管县体制改革的必要性分析[J].《中国行政管理》,2006(5).
[29]董晓倩.地方治理视角下的扩权强县[J].吉林省教育学院学报,2007(9)
[30]纪良纲,陈晓永,陈永国.关于扩权强县(市)改革的体制性思考[J].河北经贸大学学报,2008(3).
[31]谢庆奎.中国政府的府际关系研究[J].北京大学学报(哲学社会科学版),2000(1)
[32]傅白水.浙江15年4轮强县扩权,义乌成为全国权力最大县[J].《中国经济周刊》,2007(3).
[33]于新恒,王丽慧.强县扩权改革中的问题与突破点[J].《领导科学》,2006(15).
[34]邱哲.“扩权强县”改革研究[J].常熟理工学院学报,2006(5).
[35]崔岩.日本行政体制改革分析[J].《日本研究》,2003(2).
[36]刘福刚.第六届全国县域经济基本竞争力评价结果揭晓[J/OL].人民网,2006-12-5
[37]国家统计局.吉林统计年鉴2006[M].北京：中国统计出版社,2007.
[38]唐铁汉.深化行政管理体制改革[M].北京：国家行政学院出版社,2006.
[39]吴知论.中国地方政府管理创新[M].北京：人民出版社,2004.
[40]李青山.行政管理学[M].北京：中国农业大学出版社,2002.
[41]中共中央国务院关于推进社会主义农村建设的若干意见[N].人民日报,2006(2).
[42]温家宝在全国农村税费改革试点工作会议上的讲话[N].人民日报,2005.
[43]卢现祥.新制度经济学[M].武汉：武汉大学出版社,2004.
[44]杨荫凯,韩冬梅.我国县域经济发展的基本思路[J].经济纵横,2005(8)：5-8.
[45](美)R科斯,DC诺思.财产权利与制度变迁[M].上海：上海三联书店,上海人民出版社,1994：253.
[46]张继顺.我国“扩权强县”改革：问题与对策[D].长春：吉林大学,2007.
[2]刘芳.河南强县扩权进程中的问题与对策研究[D].郑州：河南农业大学.2009.
[3]张春阳.强县扩权新突破—浙江义乌市扩权改革的思考[D].济南：山东师范大学.2008.
[4]沈军.“强县扩权”—历史演义的必然结果[J].《经济研究导刊》,2008(13).
[5]孙学玉.“扩权强县”增强县域经济发展活力[J].《理论学习》,2007(2).
[6]龚琦,付妮嘉,王雅鹏.湖北省强县扩权效果分析[J].华中农业大学学报(社会科学版),2007(1).
[7]沙虎居.对浙江“省管县”体制和强县扩权的解析[J].《科学决策》,2009(4).
[8]张占斌.政府层级改革与省直管县现实路径研究[J].《经济与管理研究》,2007(4)
[9]周明生,李猛.强县扩权促进区域中心城市发展的思考[J].《经济探讨》,2007(2).
[10]孙学玉.县扩权与省直管县(市)的可行性分析[J].《中国行政管理》,2007(6).
[11]王仕军,冯春.省管县体制改革：实践与理论的理性推进[J].《决策》,2008(4).
[12]温如春.强县扩权与湖北县域经济发展[J].《商业时代》,2007(32).
[13]钟大辉.产业集群推动县域经济发展研究[J].吉林农业科技学院学报,2009(2).
[14]许经勇.稳步推进扩权强县改革试点,不断增强县域经济发展活力[J].《福建理论学习》,2009(7).
[15]董立仁.稳妥推进省管县体制改革[J].《党政干部论坛》,2009(7).
[16]孙学玉.我国强县扩权实践模式的案例分析[J].《学海》,2008(1).
[17]郑吉萍.县域扩权——行政管理体制改革的制度创新[J].《行政与法》,2007(4).
[18]范方志,汤志刚.政府间纵向分权的契约性质——以浙江强县扩权、强镇扩权为例[J].《财经问题研究》,2007(11).
[19]许经勇.壮大县域经济的重要途径：“强县扩权”与“强镇扩权”[J].《新观察》,2009(4).
[20]邹惠艳,傅光明.推行省直管县财政体制刍论——关于浙江、安徽、湖北的实证研究[J].《现代经济探讨》,2006(11).
[21]甘行琼.省管县代替市管县的政治经济学[J].《财政研究》,2005.
[22]印幸福.借鉴美国经验,发展县域经济[J].《江苏经济》,2002(10).
[23]贺海峰.安徽2008县域经济考核解析[J].《决策》,2009(6).
[24]张占斌,李伟.百强县的共同经验是什么[J].《人民论坛》,2007(9).
[25](美)文森特·奥斯特洛姆,罗伯特·比什,艾莉诺·奥斯特罗姆.美国地方政府[M],北京：北京大学出版社,2004.
[26]孙柏瑛.当代地方治理,面向二十一世纪的挑战[M],北京：中国人民大学出版社,2004.
[27]刘君德,贺曲夫,胡德.论“强县扩权”与政区体制改革[J].杭州师范学院学报(社会科学版)2006(11).
[28]孙学玉.强县扩权与市管县体制改革的必要性分析[J].《中国行政管理》,2006(5).
[29]董晓倩.地方治理视角下的扩权强县[J].吉林省教育学院学报,2007(9)
[30]纪良纲,陈晓永,陈永国.关于扩权强县(市)改革的体制性思考[J].河北经贸大学学报,2008(3).
[31]谢庆奎.中国政府的府际关系研究[J].北京大学学报(哲学社会科学版),2000(1)
[32]傅白水.浙江15年4轮强县扩权,义乌成为全国权力最大县[J].《中国经济周刊》,2007(3).
[33]于新恒,王丽慧.强县扩权改革中的问题与突破点[J].《领导科学》,2006(15).
[34]邱哲.“扩权强县”改革研究[J].常熟理工学院学报,2006(5).
[35]崔岩.日本行政体制改革分析[J].《日本研究》,2003(2).
[36]刘福刚.第六届全国县域经济基本竞争力评价结果揭晓[J/OL].人民网,2006-12-5
[37]国家统计局.吉林统计年鉴2006[M].北京：中国统计出版社,2007.
[38]唐铁汉.深化行政管理体制改革[M].北京：国家行政学院出版社,2006.
[39]吴知论.中国地方政府管理创新[M].北京：人民出版社,2004.
[40]李青山.行政管理学[M].北京：中国农业大学出版社,2002.
[41]中共中央国务院关于推进社会主义农村建设的若干意见[N].人民日报,2006(2).
[42]温家宝在全国农村税费改革试点工作会议上的讲话[N].人民日报,2005.
[43]卢现祥.新制度经济学[M].武汉：武汉大学出版社,2004.
[44]杨荫凯,韩冬梅.我国县域经济发展的基本思路[J].经济纵横,2005(8)：5-8.
[45](美)R科斯,DC诺思.财产权利与制度变迁[M].上海：上海三联书店,上海人民出版社,1994：253.
[46]张继顺.我国“扩权强县”改革：问题与对策[D].长春：吉林大学,2007.