从分割走向整合:推进国内统一大市场建设的阻力与对策

From Segmentation to Integration:The Resistance and Countermeasures to Promote the Construction of a Unified Domestic Market

构建统一开放、竞争有序的全国大市场,是重塑大国竞争优势、构建新发展格局、提升产业链现代化水平、实现区域经济协调发展的基础。当前中国的市场分割主要表现为转轨时期政府的各种干预市场的选择性行为,如地方政府主导型产业政策、产权交易市场壁垒、商品和要素市场分割等。"为增长而竞争"的激励机制、区域倾斜政策和不规范的优惠政策、财政分权体制下的地方互动策略、小国贸易条件下的对外贸易偏好、政府合作机制虚化等因素,是形成"行政区经济"现象的直接原因,而更深层次的原因,则与追赶型战略决定的增长体制有密切的联系。本文据此提出,中国现代化战略目标决定了速度型赶超要让位于效率和质量型赶超,地方政府的经济职能和发展的动力机制还需要充分利用。现阶段可先从改造地方政府的目标偏好函数、改革地方政府主导型产业政策的实施方式入手,未来要逐步实现赶超型政府向服务型政府、建设型财政向公共财政的转变。当前要制定地方政府直接干预市场行为的负面清单;要分区域、分层次推进全国统一大市场建设;按照要素的公共性分类,先易后难地推进要素市场建设;要兼顾中央统一集权与地方发展积极性,实现央地关系的法治化;要鼓励企业跨地区兼并收购,强化市场一体化的微观基础。

Building a unified,open,competitive and orderly national market is the foundation for reshaping the competitive advantages of major countries,building a new development pattern,upgrading the modernization level of the industrial chain,and realizing the coordinated development of regional economies.The current market segmentation in China is mainly manifested in various selective market interventions by the government during the transition period,such as local government-led industrial policies,market barriers for property rights transactions,segmentation of commodity and factor markets,etc.The incentive mechanism of"competition for growth",regional support policies and nonstandard preferential policies,local interaction strategies under the fiscal decentralization system,foreign trade preferences under small countries’trade conditions,the blurring of government cooperation mechanisms are the direct cause of the phenomenon of"administrative region economy".The deeper reasons are closely related to the growth system determined by the catch-up strategy.Based on this,this article proposes that China’s modernization strategy determines that speed-based catch-up should give way to efficiency and quality-based catch-up,and that the economic functions of local governments and the driving force mechanism for development still need to be fully utilized.At this stage,we can start with reforming the local government’s objective preference function and reforming the implementation of local government-led industrial policies.In the future,we will gradually realize the transition from catching-up government to service-oriented government and construction-oriented finance to public finance.At present,the negative list of direct market intervention by local governments should be formulated.It is necessary to promote the construction of a unified national large market by regions and levels.According to the publicity classification of factors,promote the construction of factor markets before easy and difficult.It is necessary to consider the needs of centralized power and local vitality,and realize the rule of law in the relationship between the central and local governments.We should encourage enterprises to merge and acquire across regions and strengthen the micro foundation for market integration.