跨层级事权约束下自贸区政府管理体制调适逻辑--以21个自贸区为例  

The Adaptation of Free Trade Zone Managerial System under the Multi-level Power Distribution Conflicts:A Case Study of 21 FTZs

作　　者：高恩新[1] GAO En-xin(School of Public Administration,East China Normal University,Shanghai 200062,China)

机构地区：[1]华东师范大学公共管理学院,上海200062

出　　处：《苏州大学学报（哲学社会科学版）》2021年第6期30-37,共8页Journal of Soochow University(Philosophy & Social Science Edition)

基　　金：国家社会科学基金项目“经济开发区管理体制运行阻梗及优化路径研究”(项目编号:21BZZ066)的阶段性成果。

摘　　要：作为虚体治理单元,中国自贸区形成决策-执行-协调功能分化与四级纵向赋权相结合的管理体制,运用事权下放、组织位阶提升、组建高等级议事协调小组对管理主体赋权增能。自贸区政府管理从任务型转为“领导小组+科层化”体制,显示了特殊经济功能区制度创新的政治权威依赖和空间治权重叠特征。“领导小组+科层化”体制强化了纵向赋权与横向协同能力,但功能定位综合化削弱制度创新的专门性优势,人事“高配”转向“平配”降低了自贸区自主改革能力。自贸区政府管理体制需要进一步强化管理主体事权法定,实现自贸区与行政区、其他特殊经济功能区功能分化与互补,为构建开放型经济新体制积累经验。As a virtual unit of governance,the empowerment of the management body of the FTZ is the key to institutional innovation.China’s FTZs have developed a management system that combines the triple function differentiation of decision-making-execution-coordination and four levels of vertical empowerment,using decentralisation,organisational upgrading,and the formation of high-level deliberative and coordination groups to empower the management bodies.The shift from a task-based to a“leadership group+section”system of government management in the FTZ demonstrates the dependence on political authority and the overlapping spatial governance that characterises the institutional innovation of the Special Economic Zone.The system of“leadership team+section”system strengthens vertical empowerment and horizontal synergy,but the integrated positioning of functions weakens the specialised advantages of institutional innovation,and the shift from“high”to“low”personnel allocation reduces the FTZ’s capacity for autonomous reform.The government management system of FTZs needs to further strengthen the legal authority of the management body,and realise the differentiation and complementarity of the functions of FTZs with administrative regions and other special economic function zones,so as to accumulate experience for building a new system of open economy.

关 键 词：自贸区 管理体制 事权配置 赋权增能 

分 类 号：D035[政治法律—政治学]