长江经济带建设与发展的体制机制探索

Institutions and mechanisms for developing the Yangtze River Economic Belt

长江经济带建设上升为国家战略,健全的体制机制是这一地域广阔、内部差异巨大的大河经济带建设与发展的重要保障。按照"国外经验—国内实践—存在问题—政策建议"的思路,本文从流域综合研究和规划、区域协调机制、管理体制、法律法规等方面探讨长江经济带建设的体制机制保障问题。从国外经验来看,大河流域经济带的建设管理强调深入的系统综合研究,建立多层次的协调机制,设置综合性的政府管理机构,建设流域开发综合法律法规体系。国内在长江开发与保护管理体制机制方面进行了多年的实践探索,也建立了一些长江流域开发管理机构,出台了一些相关的法律法规,并在跨江发展、飞地经济、港口整合、通关一体化等区域合作机制方面有所突破,总体上仍存在缺乏综合性的国家管理机构与系统性的政策支撑、区域与部门之间尚未建立有效的协调机制、区域市场一体化受到行政壁垒制约、流域开发管理缺乏综合性法律法规保障等问题。为有效落实长江经济带发展战略,应尽快理顺长江经济带建设和发展管理的体制机制,包括成立长江经济带开发管理委员会,建立多层次协调平台与机构,促进市场一体化发展,实行多样化的生态补偿模式以及制定和出台《长江法》等。

With the recent government policy stipulating the development of the Yangtze River Economic Belt(YREB) as a national development strategy, sound regional institutions and mechanisms are urgently needed to ensure the development of this territorially vast and internally highly differentiated region. This article analyzes the successful experiences of developing and managing great river basins around the world and reviews the evolving institutions and mechanisms of the Yangtze River Economic Belt development and governance, and then identifies problems and some countermeasures to sustain the strategy of developing the Yangtze Economic Belt. Innovation of institutions and mechanisms is analyzed with respect to comprehensive research and development planning, regional coordination mechanism, comprehensive river basin management, and the system of laws and regulations. Currently, some central ministries and local governments have explored various innovations on institutions and mechanisms to promote regional integrated development along the Yangtze River,such as cross- river industrial parks and enclave economy construction and development, port coordination, and integration of customs clearance, among others. However, based on the result of the comparative analysis between international experiences and the local development, this study found that there exist some current problems in developing sound institutions and mechanisms for the management of the Yangtze River Economic Belt. These include the lack of a comprehensive government institution and systematic policy to support integrated management, low degree of coordination between governmental departments and territory- based administrations in watershed management, less developed regional integrated market system due to administrative barriers, as well as the lack of comprehensive laws and regulations to guarantee the sustainable development of the Yangtze River Economic Belt. Accordingly, the article proposes five policy recommendations to support the future development of the YREB:(1) establish a cross- sectoral administrative committee and formulate a systematic regional policy for integrated watershed management;(2) establish multilevel coordination platforms and institutions for promoting regional consultation;(3) break administrative barriers for establishing a regional integrated market system;(4) explore diversified ecological compensation methods to promote the establishment of compensation mechanisms between the upstream and downstream regions; and(5) legislate a Yangtze River integrated management law and improve the relevant legal system for sustainable development.