制度—能力:优化营商环境的治理框架及其检验

Institution-Capability:A Governance Framework of Optimizing Business Environment and Its Test

优化营商环境的实质就是推进营商环境治理现代化,因而"制度—能力"治理框架对于优化营商环境具有可适性.通过对《优化营商环境条例》的文本分析,建构了一个包括市场主体保护制度、优化市场环境工作制度、政务服务制度、市场监管执法体系、营商环境法治保障等五个方面的制度安排与政务服务能力、市场监管执法能力两个方面的能力要求的治理框架体系,并运用该框架对当前我国各地优化营商环境实践效果进行诊断.研究发现:优化营商环境中仍存在诸如政策法规不完善、生产要素供给不足、乱收费、"融资难融资贵"、"新任不理旧任的账"、政府承诺不兑现、"不作为乱作为"、政商关系扭曲、任性执法、政策落实"中梗阻"、法治化思维欠缺等制度障碍,以及"新衙门作风"、信用监管效能不佳、执法协调联动不畅等能力问题.研究结论表明:"制度—能力"治理框架对优化营商环境极具解释力,是评价营商环境治理绩效,推进营商环境优化升级的有效分析工具.

The essence of optimizing business environment is to promote the modernization of business environment governance,so the“institutional-capability”governance framework is suitable for optimizing business environment.Based on the text analysis of Regulations on Optimizing Business Environment,a governance framework system requiring institution arrangement,including market subject protection institution,market environment work institution,government affairs service institution,market supervision and law enforcement institution,business environment legal guarantee,and governance system,including government affairs service capability and market supervision and law enforcement capability,is constructed.The framework is used to diagnose the practical effect of optimizing the business environment in different parts of China.The study finds that there are still some institutional obstacles and capability defects in optimizing the business environment.The result shows that“institutional-capability”governance framework is an effective analytical tool for evaluating the performance of business environment governance and promoting the upgrading of business environment.