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分权化对中国城市发展的影响

时间：2023-03-19 理论教育 版权反馈
【摘要】：伴随着市场化改革的是经济制度变革和分权化运动，中国的经济改革重构了中央和地方政府、计划和市场、国内和国际力量的关系，中央政府下放了更多、更大的权力给地方政府。转型期中国地方政府发展经济的能动性和积极性达到了历史的最高峰。
分权化对中国城市发展的影响_体制转型与中国城市空间重构

1.4.5　分权化对中国城市发展的影响

二战后西方国家受到凯恩斯主义经济学的影响，各国普遍采取强烈的政府干预。而1970年代爆发的经济危机则宣告了凯恩斯主义的失败，资本主义制度下的传统经济秩序面临新的挑战，公众对公共政策产生不满。1980年代后，新自由主义思想开始兴盛，西方各国进行了各种各样的经济改革尝试，如私有化（privatization）和解除管制（deregulation），以形成“放宽的市场”（free up the market），给予资本活动更大的空间。在经济欠发达国家，经济正面临着转型:由传统的计划经济或管制经济向市场经济过渡，地方发展经济的体制束缚逐步解除，有了更多的主动权和自由裁量权。因此，新自由主义思潮和实践逐渐风靡全球，出现了全球性的权力逐级下放，低层级的地方政府（主要是城市政府）拥有了更多的事权和财权，世界范围内的经济结构、经济过程和组织机构的灵活性加强了（Havey，1989；Knudsen，1996）。弗里德曼（Friedmann，2003）认为，全球化进程中许多国家的中央政府将一部分必要的权力下放给地方/区域的政府，这增强了城市与地方政府管理经济和社会发展的能力。

在计划经济体制下，中国的中央政府在政治、行政、经济、财政等方面高度集权，通过自上而下的计划安排、统收统支的财政体制全面控制、管理国家范围内的国民经济运行。在中央集权的制度下，国家的利益就是地方的利益，地方政府失去了应有的利益基础和相对的独立性，没有自己的利益要求和目标，处于一种“中央政府延伸部门”的地位。它在经济活动中的角色主要是安排企事业单位执行和完成国家下达的计划指标，而无需考虑这些计划的完成对地方发展的作用。传统体制下中央和地方的关系就像母公司与子公司的关系一样，是生产的层次性分工关系。

中国的改革开放过程，从总体上看是一种中央向地方放权的过程，或称行政性分权（administrative decentralization）。伴随着市场化改革的是经济制度变革和分权化运动，中国的经济改革重构了中央和地方政府、计划和市场、国内和国际力量的关系（Wei，2001），中央政府下放了更多、更大的权力给地方政府。从1979年开始，中央采取了一系列措施扩大各级地方政府的经济管理权限，例如:从1980年开始在全国实行财政“包干制”，给予地方政府一定的财政支配权；1994年开始实行分税制财政体制，使各地区有了发展经济的更大动力；1980年代中央陆续下放企业管理权限，将大部分企业划归地方政府直接管理；大幅度减少国家计划管理的物资产品，让地方政府成为地区经济发展的物资调配主体；扩大地方政府的投融资权限，使地方政府成为地方投资活动的主要组织者等等。所有这些中央政府放权给地方政府的制度安排，被统称为“分权化”改革。

分权化最显著的结果就是赋予了地方以相对独立的利益，并强化了地方政府管理经济的职能，从而使地方政府兼具了区域经济调控主体和经济利益主体这一双重身份。这种双重身份使地方政府的行为目标划分为两部分:一方面，作为区域经济调控主体，地方政府有义务完成中央政府下达的各项经济发展指标，如推动区域经济持续高速增长；出色完成中央财政的上缴任务；培育完善市场体系，发挥市场在资源配置中的基础性作用，为企业的生存和发展提供良好的外部环境；调整产业结构，扶持有竞争力的产业，提高地区经济的整体竞争力等等。地方官员出于追求在任期间良好政绩声誉的目的，往往自觉地努力完成这些目标。另一方面，作为一级相对独立的经济利益主体，地方政府有追求自身利益最大化的要求，既追求所在地区利益最大化，也追求地方政治利益最大化。例如，为了增加本地税收和就业机会而盲目投资、抑制上级的兼并；推行地方保护主义，阻止要素流出和外地产品的流入，以分享行政垄断下企业获取的收益；以集资、摊派、收费方式扩张非规范收入，弥补地方政府的消费与投资支出；采取变通措施来反宏观调控，以维护、强化地方利益；通过对“抢夺”发展机遇和政绩工程的显现，来博取政治资本等等。

西方国家的城市政府为了做出政绩和发展经济，不得不借助于私人集团——工商业及房地产公司的财力，掌握着权力的市政府就必须和控制着资源的企业集团结盟，出现在治理城市中的“权”和“钱”的联盟。而地方政府企业化也已成为中国城市转型期的特征之一，地方政府和经济精英为了实现各自的政治经济利益，组成了各种正式和非正式的增长联盟，在客观上也促进了城市的快速发展（尤其是物质空间的建设）（Wu，2002；Ma，2001）。从内部环境看，市场化改革和分权化运动使地方政府具有了加快经济发展的动力和手段；从外部环境看，全球化加剧了地方政府之间的竞争。地方政府为了发展地方经济，想出各种手段和计策，成为典型的企业型政府（entrepreneurial government），这在我国东部沿海地区尤为突出。事实上，转型期的地方政府已成为一个超级企业（Wei，2002；Wu，2002；Wu，2003；张京祥，2005），之所以称之为“超级”，是因为它既拥有一般企业所无法获得的公共资源（土地、环境、公共设施等），还拥有企业所不具有的行政权力、制定竞争规则的权力（如税收政策、城市规划）、规避风险的特权（如银行贷款、融资等）（Zhang，2004）。转型期中国地方政府发展经济的能动性和积极性达到了历史的最高峰。

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【注释】

[1]1987年诺贝尔奖获得者R.Solow历经10年研究，指出美国国民生产总值增长中的90%左右来自技术进步，仅10%来自资本积累的增加。1996年美国新增产值的2/3是由微软这样的企业创造的。

[2]Hoover E M著；郭万清，汪明，孙冠群等译.区域经济学导论.上海:上海远东出版社，1998

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