“十一五规划”开局节能、减排指标“失灵”的制度分析

An Institutional Analysis on Failure to Achieve Energy Conservation Target and Pollutant Emission Control Target at the Beginning Stage of the 11 th Five-Year Plan

"十一五"开局之年节能、减排指标双双失灵引人深思。以政策阶段视角和正式-非正式规则视角审视"十一五规划"中主要指标的制定过程和执行过程,发现规划编制过程中,正式制度赋予地方政府的自由度被非正式的削减,导致地方政府在指标制定过程中缺乏表达意志的能力;在规划实施过程中,目标责任制表面上强化了地方政府的义务,但中央政府却无法提供可预期的责任机制。在此基础上提出相关的政策建议。

In the first year of China＇ s 11 th five -year plan, both energy conservation target and pollutant emission control target failed to be realized. This paper probes into the target - making process and target - implementing process to see what the formal rules are and how they operate informally. It is demonstrated that, on one side, local governments have little opportunity to present their willingness in the target - making process though formal rules do give them enough space, and on the other side, target - based responsibility system the legal effectiveness of which is in vagueness can not give local governments proper expectation. Based on the analysis above, corresponding are put forward.