论开发区管委会的法律地位

发布时间：2018-12-11 04:33

【摘要】：改革开放以来,开发区逐渐发展为所在城市的创新增长点和经济增长极。管委会通常是国内开发区的治理机构。目前,国内开发区管委会的法律地位不明,引发其权责不清、运作程序不明、执法效力受质疑等问题。传统理论倾向于将开发区管委会界定为地方性政府、政府部门、政府派出机关、行政派出机构、行政受委托组织。本文立足于剖析开发区管委会法律地位传统理论,以公共服务多元化的理论视角,构建管委会的法律地位理论体系。一方面,我国各地开发区管委会具有多方面功能,因而具有多元化的法律地位;另一方面,各地管委会又具有其主要功能,从而决定了其主导的法律地位。本文主要研究高新区和经济开发区的管委会及类似机构、组织的法律地位。开发区设立的功能定位是对外开放的窗口,高科技研发、经济结构调整、体制改革、循环经济发展的示范排头兵,对区域经济发展起到带动作用。因此,对开发区管理机构--管委会的定位必须以上述经济建设功能为宗旨。实践中,开发区管委会面临着法律地位困惑、“合法性危机”和公共服务的政府垄断倾向明显等一系列问题,使明确开发区管委会的法律地位迫在眉睫。本文对开发区管委会单一化定位予以否定,认为管委会不是地方政府,不是政府派出机关,不单是行政派出机构,不单是行政被授权组织,不单是行政受委托组织。笔者从公共服务社会化理论出发,根据开发区管委会多样化职能,对管委会的法律地位作出对应的多元化定位:即开发区管委会具有行政授权和行政委托性质,也具有事业单位、第三部门和企业的性质,是多元化地位的综合,但各开发区管委会又具有其主导地位。开发区治理要实现由政府单一主导公共服务格局向“政府—管委会—社会—市场”多中心的服务模式转变。对管委会的多元化定位带来管委会内部不同部门之间协调难和管理难的问题。公共服务的社会化和市场化,可能出现政府放权后的“市场失灵”现象。因此,应对开发区管委会的法律地位进行立法完善和制度重构。首先,以开发区管委会的经济功能为导向,对其进行多元化角色的定位,并依据法律规定,重构开发区管委会的机构设置,形成以管委会引导、全社会共同参与的完整的组织体系。其次,制定《开发区管理法》,明确管委会是市级政府职能部门派出机构、被授权组织和受委托组织的综合体,明确公共服务的范围、主体、职责和程序,实现服务供给规范化和多元化。厘清开发区所在地政府和管委会的关系,建立政府和管委会之间的沟通协调机构。最后,政府和管委会应承担公共服务社会化后的保障义务和监督责任。政府和开发区管委会可以通过完善第三部门相关的法律制度,完善公共服务财政体制和市场规则,创造公共服务实施的良好环境,承担起保障义务。政府和管委会通过加强对公共服务供给主体的监督和评估,完善公共服务价格机制,进行宏观调控,承担起公共服务社会化后的监督和保证责任。
[Abstract]:Since the reform and opening-up, the development zone has gradually developed into the innovation growth point and the economic growth pole of the city. The management committee is usually the governing body of the domestic development zone. At present, the legal status of the management committee of the domestic development zone is unclear, and the problems such as the lack of authority and responsibility, the unclear operation procedure and the question of the effectiveness of the law enforcement are raised. The traditional theory tends to define the management committee of the development zone as a local government, a government department, a government sending organ, an administrative agency and an administrative organ. In this paper, based on the analysis of the traditional theory of the legal status of the management committee of the development zone, the legal status theoretical system of the management committee is constructed based on the theory of the diversification of the public service. On the one hand, the management committee of the development zone in China has many functions, so it has a diversified legal status; on the other hand, the management committee has its main functions, thus deciding its dominant legal status. This paper mainly studies the legal status of the management committees and similar institutions and organizations in the high-tech zone and the economic development zone. The functional orientation of the development zone is the opening-up window, the high-tech R & D, the economic structure adjustment, the reform of the system, the demonstration of the circular economy development, and the driving effect on the regional economic development. Therefore, the positioning of the governing body of the development zone--the management committee must be based on the above-mentioned economic construction function. In practice, the development zone management committee is faced with a series of problems such as the confusion of the legal status, the legitimacy crisis and the government monopoly tendency of the public service, so that the legal status of the management committee of the development zone is imminent. In this paper, the singulation and location of the management committee of the development zone is denied, and it is considered that the administration committee is not a local government, is not a government sending organ, is not only the administrative agency, is not only the administrative authorized organization, not only the administrative subject organization. Based on the theory of public service socialization, the author has made a corresponding diversified positioning on the legal status of the management committee according to the diversification function of the management committee of the development zone, that is, the management committee of the development zone has the property of administrative authorization and administrative commission, and also has the property of the public institution, the third department and the enterprise, It is the comprehensive of the diversified status, but the management committee of each development zone has its dominant position. The management of the development zone is to realize the transformation from the single-dominated public service pattern of the government to the service mode of the 鈥淭he Administration Commission of the Government of the People's Republic of China鈥，

本文编号：2371877