功能类国有企业的效用、困境与监督治理  

The Utility, Predicament, and Supervision Strategy of Functional State-Owned Enterprises

作　　者：周鲁耀 陈科霖 Zou Luyao;Chen Kelin(Zhejiang Gongshang University,Hangzhou;Shenzhen University,Shenzhen)

机构地区：[1]浙江工商大学公共管理学院 [2]浙江工商大学政府管理研究所 [3]深圳大学城市治理研究院

出　　处：《经济社会体制比较》2021年第6期145-154,共10页Comparative Economic & Social Systems

基　　金：国家社会科学基金一般项目“政企统合模式下的地方政府融资平台监管体系研究”(项目编号:18BZZ083);广东省哲学社会科学规划青年项目“制度优势转化为国家治理效能的实现机制研究”(项目编号:GD20YXY02)。

摘　　要：国有企业改革的成败决定了党的执政经济基础是否能够得到坚持和加强。当前国有企业分类改革过程中,功能类国有企业作为在实践中广泛存在但尚未被清晰界定的一种类型,体现出了国有企业在政治效用与经济效用以外的工具效用。功能类国有企业最典型的形态为各类地方政府融资平台公司。相关访谈调研等实证研究发现,功能类国有企业嵌入在地方政府治理结构之中,延展了政府的行政能力,成为政府组织化治理的有效工具。与此同时,功能类国有企业所面临的组织身份困境和人员身份困境使之能够规避既有监管规则,并将廉政风险传导进政府治理体系之中。正视功能类国有企业的效用与风险,需明确其属于公共组织的身份,将之纳入公共权力监督体系,并进而通过"行政+市场+党建"联动机制构建起功能类国有企业有效监管的系统方案。The success or failure of the reform of state-owned enterprises determines whether the Party’s ruling economic foundation can be maintained and strengthened. In the current process of reforming state-owned enterprises by category, "functional state-owned enterprises, " as a type that exists widely in practice but has not been clearly defined, reflect the instrumental utility of state-owned enterprises in addition to their political and economic utility. The most typical form of functional state-owned enterprises is various types of local government financing platform companies. Based on relevant interviews and investigations, this paper found that functional state-owned enterprises are embedded in the governance structure of local governments, extending the administrative capacity of the government, and becoming an effective tool for the organization of government governance. In addition, the organizational and personnel identity dilemmas faced by local government financing platform companies enable them to circumvent the existing regulatory rules and transmit the risk of integrity into the government governance system. Faced with the utility and risks of functional state-owned enterprises, it is necessary to clarify their identity as a public organization, incorporate them into the public power supervision system, and then build a systemic plan for the effective supervision of functional state-owned enterprises through the "administration + market + party building" linkage mechanism.

关 键 词：功能类国有企业 分类改革 工具效用 地方政府融资平台 监督 

分 类 号：D630.9[政治法律—政治学] F276.1[政治法律—中外政治制度]