我国法定机构的再思考:理念更新与制度改进

The Developing Path of Statutory Institutions in China:Idea Updates and Institutional Development

作为以“决策和执行分开,执行专门化”为整体思路,旨在提高公共物品供给效率而创设的法定机构,是行政体制改革在超常规深化中的积极探索。我国许多地方基层政府在面临各种改革难题,立足自身寻求解决政府与市场、政府与社会、改革与法治、职能与编制关系中,做出了设立法定机构的改革探索。如何紧密结合我国国情,将这一借鉴性制度在中国特色社会主义政府治理体系中创新出应有的制度成果和治理效能,关键是处理好实践中存在的宏观决策与微观执行、自主行动与政府控制、公共精神与市场精神之间的矛盾冲突,避免法定机构职权与属性相偏离、行政化而非市场化运行、公共价值与市场价值低度耦合。应当从理念上对法定机构的属性、职能和运作方式进行再认识,并在实践中通过提供立法供给、完善权责清单以及加强内外监督等制度改进,为法定机构充分发挥既定作用创制良好的可持续发展环境,使其成为政府现代治理体系中积极有为的基层机构。

Statutory institution created with the principle of“separating decision-making and execution as well as specializing in execution”to improve the efficiency of providing public goods is an active exploration in the administrative reform.Many local grass-roots governments in our country have set up statutory institutions to deal with the relationship between the government and the market,the government and the society,administrative reform and the rule of law,and the administrative functions and limited authorized personnel.How to closely combine our national conditions and innovate it into the socialist governance system with Chinese characteristics to create due institutional achievements and governance efficiency,the key is to handle conflict between macro decision-making and micro-implementation,autonomy and government control in practice,voluntary spirit and profit-seeking desire in market to avoid the deviation of statutory authority and its attributes,administrative rather than market-oriented operation and low coupling between voluntary value and profit-seeking value.It is necessary to re-understand the attributes,functions and operation of statutory institutions from a conceptual perspective;meanwhile providing legislative supplies,improving the power list and responsibility list and strengthening internal and external supervision in practice to create a sustainable development environment for statutory institutions to be a promising component of the modern governance system.