深化监管机构改革 推进市场监管现代化--以杭州市为例

Analysis of Institutional Reform on Market Supervision——The Case of Hangzhou City

自2013年起,工商、质监、食药等市场监管部门经历了建国以来规模最大、为期最长、争议最多的新一轮机构改革。相关中央政策目标多元;各地自发探索了多种机构改革模式,同时"下改上不改"与"左右不同样"引发混乱;学术研究方兴未艾但缺乏系统全面的实证分析。2018年,《深化党和国家机构改革方案》在顶层设计层面一锤定音,将原工商总局、质检总局、食药总局及国家发改委、商务部的反垄断职责等整合,组建国家市场监督管理总局。为此,本文聚焦政府职能转变、监管模式升级、组织架构优化三个研究维度,在梳理五年来中央政策和各地实践基础上,选择三合一、分级管理模式的杭州作为样本,重点评估其成效与不足,提炼对新市场监管体系的启示。本文建议,在三合一作为市场监管机构改革最大公约数的基础上,深化综合执法、平衡条块关系,以期统筹各项政策目标,推动市场监管体系现代化。

Since 2013, regulatory agencies on industry and commerce, quality supervision, food and drug administration, and other market supervision functions have carried out the largest and longest institutional reform ever. The relevant central policies have multiple objectives, which have led to various institutional reform schemes around the country. The horizontal and vertical inconsistency has created some controversies. Academic research on these issues have been growing but lack systematic and comprehensive empiricalanalysis. In 2018, Plan on Deepening Reform of Party and State Institutions made the final call, announcing the merger of SAIC, AQSIQ, CFDA and anti-trust responsibilities of NDRC and MOFCOM. More research is needed both at theoretical level and empirical level. To fill the gap, this article focuses on three research directions： the transformation of the government function, the innovation of the regulatory mode and the optimization of the architectures of organizations. On the basis of a comprehensive analysis of central policies and nationwide practice, this article takes Hangzhou as a case which adopts the scheme of ＂three-in-one＂ and hierarchical management. The case study assesses the effectiveness and shortcomings of Hangzhou scheme, and summarizes some patterns for the following top-level design and local market supervision institutional reform. Based on the case study, this article proposes to use the ＂three-in-one＂ as a major model for future market supervision institutional reform below the provincial level, to deepen comprehensive law enforcement, to balance ＂Tiao-kuai＂ relationship, to give overall consideration of policy objectives, and to promote the modernization of market supervision system.