政企互动与规制重建:企业家如何推进政策创新?——基于深圳改革经验的实证分析

Government-Enterprise Interaction and Regulation Reconstruction:How Do Entrepreneurs Promote Policy Innovation?——An Empirical Analysis from Shenzhen Experience

企业家不仅是市场利润的创造者,也是公共政策创新的倡导者、推动者。本文聚焦于我国改革中的经济政策创新,构建"中央-地方-企业"互动的分析框架,区分了企业家推进政策创新的四种模式:企业-中央互动、企业-地方互动、联盟-中央互动、联盟-地方互动;然后选择深圳市四项成功的改革经验进行典型案例研究,总结政企互动的发生逻辑和运作机制。企业家通过向地方政府提出新的政策需求,争取地方出台新政策;企业家也会利用正式或非正式途径,突破层级壁垒,直接与中央政府互动,争取试点权利。中央政府通过授权或默许方式,支持地方和企业开展创新,得到中央肯定的政策创新,则会被纳入正式制度安排。企业家对互动模式的选择受到获利机会及政治关联性的影响,并通过游说、压力、协议、试验四种机制进行运作。研究发现,经济政策创新经历了"政企互动-规则变通"、"规制重建-合法化"两个阶段。本文的理论贡献是将政企互动的分析拓展到国家场域,剖析了企业家、地方政府、中央政府三方的合作与博弈机制,为政策创新提供了新解释。提升政策创新能力,既要推进简政放权,给予地方更大自主权;也要增进政企互动,注重倾听企业家的政策需求,有针对性地优化营商环境。

Entrepreneurs are more than profits creators,they also act as pioneers and promoters of policy innovations.Focusing on economic policy innovations in China,this paper builds a policy innovation analysis framework including central government,local government and enterprise and differentiates four modes:Enterprisecentral interaction,enterprise-local interaction,alliance-central interaction and alliance-local interaction.Furthermore,case study regarding Shenzhen’s successful experiences is used to conclude the logic and mechanism of the government-enterprise interaction.By letting local governments know their new demands,entrepreneurs persuade local governments to issue new policies.Entrepreneurs would also break hierarchical barriers to directly interact with central government to attain pilots approval.Central government through the means of formal authorizations or tacit approvals,support local governments and enterprises to launch experiments.The recognized results would be adopted by central government as official systems.Entrepreneurial actions are affected by profit opportunity and political relation.Lobbying,pressure,agreement and pilot are four methods of interaction.According to the research,policy innovation have to go through two steps,government-enterprise interactionflexible rules and regulation rebuildinglegalization.The theoretical contribution of this paper is to extend the analysis of government-enterprise interaction to national level,and to analyze various cooperation mechanism of entrepreneurs,local governments and central governments.The realistic significance is that business environment needs to be optimized to enhance government-enterprise interaction and government should pay more attention to policy need from entrepreneurs.