中国特色开发区视野下的浦东治理模式

【作者】 金莎；

【导师】 鲍宗豪；

【作者基本信息】 华东理工大学 ， 马克思主义中国化研究， 2011， 博士

【摘要】 中国现代化进程在1978年实施改革开放以来,自觉地进入了全球化大潮中,中国政治、经济与社会发生了巨大的变革和发展,开发区成为这一过程的风向标、排头兵、试验田和示范区。建立开发区是国家改革开发战略举措中的制度性安排,开发区在发展探索中积累的体制机制等制度创新经验又丰富和支撑了国家现代化进程中制度设计,推动中国的改革开放向纵深发展。浦东的开发开放在中国开发区发展进程的时空轴线上,无疑有承前启后的意义,在中国改革开放的制度性推进中,更具备现代化转型的标本意义和战略内涵,我们将从制度变迁的角度,通过对浦东治理模式的梳理和探讨分析,从中系统反思区域治理模式与区域发展和现代化转型之间的关系,开发区发展的目标定位、治理结构和发展路径,并以此为中国社会的现代化道路提供可借鉴、可复制、可持续的启示和经验。浦东治理模式的“中国特色”,既有取自于整个“中国模式”的成功经验,也有“浦东模式”对“中国模式”的特殊贡献。浦东政府一直作为改革的倡导者和组织者以及被改革者,通过制度供给推动经济现代化和社会现代化改革。而对于正在处于“综合配套改革”新浦东,对治理模式的再改革,不仅是浦东新的发展阶段的自身要求,更是为全国提供制度性创新,实现示范和引领的使命。这之中如何运用已有的优势,如何克服固有的“路径依赖”,哪些经验特点只是在浦东区域所特有或在一定的发展阶段有效,哪些则是一种可以上升为普遍规律的方法和原理、价值观念与行为模式,都是我们研究和思考的方向。浦东治理模式的核心是政府主导的发展模式。对于浦东而言,政府的作用一方面在于推动建立一个市场经济体制和运行机制,同时,也在推动建立一个政社合作、共同治理的社会体制和机制。浦东治理模式的成功还在于路径和方法的选择。政治领袖和浦东建设者们制定了准确的战略定位和发展路径。这种“国家战略”的开发定位,有效提高了发展的起点,缩短了发展路径。在“纲领性”计划的框架和目标下,采用了渐进改革和增量改革的具体路径,表明培育体制外的增量部分,有效地冲击和改变了原有传统体制,为构建新的体制找到了具有更强有效性、示范性的路径,增强了新体制的活力,减少了新旧体制转轨的巨大过渡成本。浦东治理模式的基础在于高效精干的执行体系和有效的制度供给。在发展的基本思路明确后,一系列配套转轨发展的制度体系和组织架构、运行机制,就成为发展的有效支撑。合理、高效的组织结构,清晰顺畅的运行流程和规范有序、充满活力公务员队伍都成为其中的有力支撑。浦东具有“中国特色”的治理模式实践,证明开发区不仅是中国模式和发展道路中的一个重要方面,而且在中国现代化进程中承担了现代化转型的试验、示范、引领功能。开发区的治理结构应随发展阶段不同而相应调整,开发区的治理形态源于开发区基本规模和发展需求。而建设现代化新城、实现区域融合、产城融合发展应是开发区发展的终极目标。强调政府权威的合理性与政府能力的有效性,将“人”作为生产、生活、发展、建设和管理主体,推动成为开发区向“新城”转型。实现区域融合发展,是浦东开发开放的现实经验和发展目标。就中国现代化发展而言,浦东的治理经验提供了一种实践的路径。一方面保持着“政府主导”的强大优势,如市场体系的构建、社会组织的培育。同时,在具体的治理机制上,又从职能、机构、人员等要素上限制政府规模,使得治理行为在市场资源配置上更多地依靠市场机制,在社会管理中更多地拓展社会组织成长空间,合作共治,学会尊重市场发展规律、社会发展规律。实践证明,政府的单向强势主导和一味消隐(简单“守夜人”功能)都无法提供发展的体制推动,必须探索政府与市场、社会有效互动的治理模式。在这一过程中,渐进改革、增量改革和顶层设计、系统配套相结合,特定区域先行发展与区域均衡协同发展相结合。渐进改革,通过增量改存量,在新的历史时期更成为一种整体规划下的主动积极的实践步骤,而不再是一种没有明确战略目标的保守被动的权宜策略。浦东开发又是全局规划、顶层设计的,它的渐进路线只是在宏观规划和顶层设计的框架内,一种分步骤、分阶段的实施方式。以培育“增量”改变“存量”,这种渐进式推进、增量改革与顶层设计有机结合,成就了浦东发展的“奇迹”。中国改革进入“攻坚期”后,渐进式推进与顶层设计、系统统筹的有机结合将成为发展的加速器。在权力结构上,浦东治理模式证明由简单集中向差别化分权转变,由金字塔型权力结构向扁平化网状权利组织转变已成为一种发展的必然。不仅体现在行政系统内部结构上下互补、层级间职能权限的差异化配置,还体现在经济领域由政府主导的“市场化”和“分权化”改革,更需要在社会建设方面,通过“共同体”建设,使社会领域向“自组织”发展,形成社会共治机制。浦东治理模式是中国模式的一部分,浦东开发开放探索了中国改革开放升级的途径,实践了政府治理体制转型的具体路径,明确确立了市场经济体制和运行方式,它是国际最有经验和中国本土实践与浦东区域特点相结合的产物,它是一条具有中国特色、上海特点、时代特征的道路,还需要我们继续探索前行,为中国现代化提供一种可行性的发展范本,继续丰富和发展中国发展模式。更多还原

【Abstract】 Since the initiation of its policy for reform and opening-up, China has become increasingly international and has experienced dramatic changes for its political, economic and social developments. Development zones are vanes of these changes by playing the role as pilot field. To establish development zone are strategic measures in mechanism arrangements, and these development zones have been supporting and pushing China’s reform to a further degree by contributing to mechanism design with their rich experience in mechanism innovation. On the map of China’s development zones, Pudong, without any doubt, takes an important place to pass over experimental experiences, and thus should be regarded as a specimen to watch China’s modernization transformation and strategic significance. The research to Pudong case in this article is expected to bring certain lights to the thoughts on the relationship of regional administration system and modernization transformation, on the strategic target, path and structure of regional development, and is expected to bring some experiences to be borrowed, duplicated, or sustained in China’s development.Pudong case is part of the successful experience of China case, but on the other hand, makes its special contribution to the China case. As a pioneer in reforming and as a pilot field to experiment the reforms, Pudong government has been actively making reforming is public administration to meet the demands of its own developments and to fulfill its tasks to bring experience to the national administration innovation. The issue that which parts of these experiences originated from the specific needs of Pudong at a certain time and which parts can be abstracted as universal values, methods and prototypes are always motivations and highlights of many researches.The core value of Pudong model is government-orienting developments. The local government has been dedicated to establishing an operation system on the basis of market economy, while building up a social system and mechanism with the core value of partnership between government and social organization and the value of shared public responsibility. The success of Pudong model is also due to the path and methodology it has chosen. Political leaders and Pudong builders chose accurate target and path for its development. To practice Pudong strategy as a state mission effectively put Pudong at a starting point and presented a shortcut for its development. On the basis of guidelines putting forward the general plan and target, Pudong has been taking gradual reforms in concrete development tactics, which has reduced the transformation cost. The success of Pudong model lays upon a solid basis of efficient practicing system and abundance mechanism resources. Whenever the development tactics are identified, a series of supporting systems are established to effectively support these tactics. Pudong’s practices with China’s characteristics verify the role of development zones as pilot field, pioneer and engines during the process of China’s modernization. The administration system of development zones could be constantly adjusted at various development states so that the organizational design shall meet the requirements of local reality. In all, the final destination is to build up a modern region and integrate growth of less developed area with the developments of urbanized area. To establish the rational authority of governments with the tool of public efficiency, to highlight the role of individual citizen as the main functional body for economic growth, community management and local development, to plan the development of urban and rural areas in one package, and to practice the growth of industry with community development as one integrity, these are experiences of Pudong strategy and are its target as well. Pudong case present a practical path for China’s modernization process. In this case, the traditional government authority is still maintained, while on the other hand, the power, organizational and employee numbers of government are limited and the rules of market operation and social developments are fully respected. During this process, gradual reforming tactics and drastic changes are planed and practiced with the tools of organizational transformation and system design; the highlighted growth of certain area and the focus for industrial growth are combined with overall forwarding and community development. The gradual transformation within the framework of overall planning and organizational design are practiced step by step and stage after stage. When entering a stage to face tougher challenges, China’s reform needs to be further accelerated by combing the gradual transformation with top mechanism design and system renovation. When it comes to the power structure, Pudong case tells the destined necessity to transform from the centralized power to differentiated and degraded power system and from a pyramid power structure to a flat power network. This transformation is practiced in the administration interior system by designing the upper and lower organizations inter-complementary to each other and by differentiating the power allocation among parallel organizations, is practiced in the reforms toward market operation and power decentralization, and even more importantly, is practiced in the establishment of shared responsibility among official bodies and social organizations for community management.Pudong’s administration model is a part of the China model. It is a case telling the Chinese characteristics, Shanghai’s local reality and the specialty of this time. This case and its research will be continued for the purpose of providing a prototype to generate sustainable development for China’s modernization and contributing more elements to the China model.更多还原