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不久前，黨中央、國(guó)務(wù)院頒發(fā)了《關(guān)于地方政府職能轉(zhuǎn)變和機(jī)構(gòu)改革的意見(jiàn)》，這是貫徹落實(shí)黨的十八大和十八屆二中全會(huì)精神作出的又一項(xiàng)重大決策，是指導(dǎo)和規(guī)范地方政府改革的重要文件。今天的會(huì)議是繼今年5月國(guó)務(wù)院機(jī)構(gòu)職能轉(zhuǎn)變動(dòng)員電視電話會(huì)議后又一次重要會(huì)議，主要任務(wù)是進(jìn)一步統(tǒng)一思想，深入動(dòng)員，對(duì)地方政府職能轉(zhuǎn)變和機(jī)構(gòu)改革進(jìn)行安排部署，把中央的決策落到實(shí)處。
Not long ago, the Central Committee of the Communist Party of China and the State Council issued the Opinion on Functional Transformation and Institutional Reform of Local Governments. That was yet another major decision made to implement the conclusions of the 18th CPC National Congress and the second plenary session of the 18th CPC Central Committee. It was an important document that would offer guidance and norms for the reform of local governments. Today's meeting is another important meeting following the audio-video conference in May on transforming functions of State Council institutions. Its main task is to further unify thinking and mobilize efforts, make arrangements for functional transformation and institutional reform of local governments and ensure that the decisions made at the central level are well implemented on the ground.
一、 上下聯(lián)動(dòng)，做好政府改革這篇大文章
I. We need to effectively write the major articles of government reform by integrating central and local efforts.
如果說(shuō)中央政府改革是上篇，地方政府改革就是下篇，需要整體構(gòu)思、通盤考慮、上下貫通，把政府改革的整篇文章做好。地方政府職能轉(zhuǎn)變和機(jī)構(gòu)改革，是黨和國(guó)家改革開(kāi)放事業(yè)大局的重要內(nèi)容，也是深化行政體制改革的重要組成部分。政府改革的主要目的，就是進(jìn)一步理順政府和市場(chǎng)、政府和社會(huì)、中央和地方的關(guān)系，更好地發(fā)揮市場(chǎng)、社會(huì)的作用，更好地調(diào)動(dòng)中央和地方兩個(gè)積極性，推動(dòng)政府全面正確地履行職能，加快現(xiàn)代政府建設(shè)，努力促進(jìn)經(jīng)濟(jì)持續(xù)健康發(fā)展、社會(huì)不斷進(jìn)步，不斷滿足人民群眾的新期待、新要求。
The reform of the central government and the local governments can be described as the two parts of an article. We need to take a holistic approach to both parts and ensure that the two go well together to form a good article of government reform. The functional transformation and institutional reform of local governments is an important part of the broader reform and opening-up endeavor of the Party and the country. It is also an important component of our efforts to deepen administrative reform. The main purpose of government reform is to clearly define the relations between government and the market, between government and society and between central and local governments. Reform can also better leverage the roles of market and society, further mobilize the initiative of both central and local governments, make sure that the government fully plays its part, accelerate the development of modern government, promote sustained and sound economic growth and social progress, and meet new expectations and requirements from the public.
（一） 地方政府改革事關(guān)經(jīng)濟(jì)持續(xù)發(fā)展和轉(zhuǎn)型升級(jí)。我國(guó)經(jīng)濟(jì)發(fā)展到今天，要實(shí)現(xiàn)長(zhǎng)期增長(zhǎng)、持續(xù)健康發(fā)展，必須轉(zhuǎn)型升級(jí)，無(wú)論是從當(dāng)前還是從長(zhǎng)遠(yuǎn)看，都到了轉(zhuǎn)型升級(jí)的關(guān)鍵階段。
1. The reform of local governments is important for sustained growth and for the transformation of the economy. Under current circumstances, if the Chinese economy is to achieve sustained and sound growth over the long run, it has to transform. Looking at the immediate and long-term needs, the Chinese economy has entered a crucial stage of transformation and upgrading.
新一屆政府成立以后，面臨的國(guó)內(nèi)外經(jīng)濟(jì)形勢(shì)錯(cuò)綜復(fù)雜，經(jīng)濟(jì)下行壓力增大；財(cái)政收入增速下滑，中央財(cái)政一度出現(xiàn)負(fù)增長(zhǎng)；貨幣增量也難以再擴(kuò)大，因?yàn)槌刈永锏乃呀?jīng)很多。在這種情況下，我們把政府職能轉(zhuǎn)變和機(jī)構(gòu)改革作為開(kāi)門的第一件大事，緊緊抓住不放，既作為全面深化改革的“馬前卒”，又作為宏觀調(diào)控的“當(dāng)頭炮”。半年多來(lái)，我們保持定力、穩(wěn)中有為，創(chuàng)新宏觀調(diào)控方式；同時(shí)深處著力、穩(wěn)中有進(jìn)，下大力氣推進(jìn)職能轉(zhuǎn)變、簡(jiǎn)政放權(quán)，中央政府分四批取消和下放了300多項(xiàng)行政審批等事項(xiàng)。原來(lái)以為，通過(guò)取消和下放審批事項(xiàng)激發(fā)市場(chǎng)活力要有一個(gè)過(guò)程，實(shí)際上這樣一個(gè)強(qiáng)烈的信號(hào)發(fā)出后，對(duì)市場(chǎng)的預(yù)期、市場(chǎng)的活力、社會(huì)資本的調(diào)動(dòng)，雖然不能說(shuō)立竿見(jiàn)影，但已初見(jiàn)成效。社會(huì)投資和創(chuàng)業(yè)熱情迸發(fā)，加快改革與調(diào)整結(jié)構(gòu)疊加的效果，超出人們的預(yù)期。今年以來(lái)，企業(yè)登記數(shù)增長(zhǎng)25%，其中民營(yíng)和個(gè)體企業(yè)增長(zhǎng)37%，帶動(dòng)了民間投資以23%左右的速度增長(zhǎng)，明顯超過(guò)政府性投資增速，這也是三季度經(jīng)濟(jì)穩(wěn)中向好的一個(gè)重要因素。通過(guò)轉(zhuǎn)變職能，把該放的權(quán)放下去、放到位，激發(fā)市場(chǎng)活力、需求潛力和發(fā)展的內(nèi)生動(dòng)力，可以有力推動(dòng)結(jié)構(gòu)調(diào)整、轉(zhuǎn)型升級(jí)，促進(jìn)以開(kāi)放帶動(dòng)改革。把中央的相關(guān)權(quán)力放給地方，促進(jìn)貿(mào)易和投資便利化，可以提高經(jīng)濟(jì)運(yùn)行效率。通過(guò)簡(jiǎn)政放權(quán)可以做到政府不花錢能辦事或少花錢多辦事，這個(gè)道理我們要深刻領(lǐng)會(huì)。
When the new government took office, it was confronted with a complex economic situation both at home and abroad, with downward pressures on the rise of the Chinese economy. Growth of fiscal revenues slowed down to such a degree that the central fiscal revenue even experienced negative growth at one point. And it was difficult to further increase money supply as there had already been much water in the pool, so to speak. Under such conditions, we decided to focus on transforming government functions and reforming government institutions as the number one task for the new government. We intended to use it to kick off profound and sweeping reform and exercise effective macro control, playing the role of "soldier" and "cannon" when a Chinese chess game begins. Over the past six months and more, we have stayed focused and worked to innovate ways of macro control while maintaining stability. At the same time, we have addressed the issue at its root and made intensive efforts to seek steady progress in transforming government functions, streamlining administration and delegating power. As a matter of fact, the central government has abolished or delegated to lower levels the power of approval over more than 300 items in four batches. We thought that it would take some time for this move to unleash the vitality of the market, but as it has turned out, the strong signal sent by this move has already produced initial, if not immediate, effect in boosting market expectations, galvanizing the market and mobilizing capital from all sources. There has been a burst of enthusiasm for investment and entrepreneurship. The combined effects of accelerated reform and structural readjustments have exceeded people's expectations. Since the beginning of this year, the number of registered enterprises has risen by 25 percent. Among them, the number of registered private and individually owned enterprises has been up by 37 percent, resulting in a growth of around 23 percent in private investment, obviously faster than the growth of government investment. This was also an important factor behind the steady and improved performance of the Chinese economy in the third quarter. Transforming government functions and fully delegating all the power that should be delegated have unlocked market vitality, potential demand and inherent driving force for development. As such, they can give a strong boost to structural readjustment, transformation and upgrading, and advance reform through further opening-up. The primary objective of the establishment of the China (Shanghai) Pilot Free Trade Zone is to promote trade and investment facilitation and enhance efficiency in economic operation through streamlining administration and power delegation. By streamlining administration and delegating power, the government can get things done without extra costs or do more with less. This is what we should fully appreciate.
改革開(kāi)放35年來(lái)，各級(jí)地方黨委政府牢牢扭住經(jīng)濟(jì)建設(shè)這個(gè)中心不放，為推動(dòng)我國(guó)經(jīng)濟(jì)社會(huì)發(fā)展作出了巨大貢獻(xiàn)。今年以來(lái)，各地花了很大氣力，取得了經(jīng)濟(jì)社會(huì)發(fā)展的新成效。從當(dāng)前看，穩(wěn)增長(zhǎng)的壓力仍然很大，財(cái)政收入的增速不高，而改善民生的剛性支出不能減，甚至在有些方面還需增加。經(jīng)濟(jì)發(fā)展靠財(cái)政支出和政府投資，靠中央再多打赤字、多增發(fā)票子，已經(jīng)受到很大限制，這方面的政策空間很有限了。從長(zhǎng)遠(yuǎn)看，各地要實(shí)現(xiàn)經(jīng)濟(jì)持續(xù)健康發(fā)展，再繼續(xù)走老路，靠政府?dāng)U大債務(wù)、單純經(jīng)營(yíng)土地，靠高投入、高消耗、高排放，也會(huì)形成過(guò)剩產(chǎn)能，肯定走不長(zhǎng)，也走不通。即便短期有效，長(zhǎng)期代價(jià)也很大。所以，對(duì)各級(jí)政府來(lái)說(shuō)，無(wú)論是當(dāng)前穩(wěn)增長(zhǎng)，還是長(zhǎng)遠(yuǎn)謀發(fā)展，都要靠改革創(chuàng)新。這就必須加快轉(zhuǎn)變政府職能，下決心破除審批多、辦證多、收費(fèi)多、罰款多的體制機(jī)制障礙，把推動(dòng)發(fā)展的著力點(diǎn)放到發(fā)揮企業(yè)、市場(chǎng)、社會(huì)力量的作用上來(lái)。
Over the past 35 years of reform and opening-up, local Party committees and governments at various levels have concentrated on the central task of economic development and made huge contributions to the economic and social development of our country. And this year, various localities have worked really hard and made new headway in economic and social development. Judging from the current situation, we are still under tremendous pressure in stabilizing growth. Fiscal revenues are only slowly growing, while the necessary spending to improve people's well-being cannot be cut and may even have to be increased in some areas. Economic growth achieved through fiscal expenditure and government investment and through more central government deficit and money supply has already come under major constraints. There is only very limited room for policy maneuver in this regard. In the long run, sustained and sound economic development will not be achieved if we continue to follow the old path. Increasing government debts, engaging in mere land transactions, and relying on excessive investment, energy consumption and emissions would also end in overcapacity. So such an approach would not go very far or lead us anywhere. Even if it does produce some short-term effects, they will come at the expense of huge long-term interests. That is why, be it for stabilizing current growth or seeking long-term development, government at all levels needs to rely on reform and innovation to release reform dividends and upgrade the economy. To achieve this, we have to accelerate transformation of government functions and make determined efforts to do away with institutional obstacles arising from excessive approvals, licences, fees and fines. We have to focus our development efforts on giving play to the roles of businesses, the market and non-government actors.
（二）地方政府改革是整個(gè)政府改革的大頭。地方政府直接與企業(yè)接觸，直接聯(lián)系人民群眾，市場(chǎng)主體和人民群眾的權(quán)益也主要通過(guò)地方政府去實(shí)現(xiàn)、維護(hù)和發(fā)展。在整個(gè)政府體系中，地方政府作用十分重要，我國(guó)90%以上的公務(wù)員、85%左右的財(cái)政最終支出是在地方。尤其是基層政府，屬于我們通常講的“最后一公里”。政府機(jī)構(gòu)改革能不能達(dá)到預(yù)期目的，職能轉(zhuǎn)變能不能落實(shí)，很大程度上取決于地方政府。近來(lái)我們到地方調(diào)研或開(kāi)座談會(huì)，許多企業(yè)家認(rèn)為，中央政府下放了許多權(quán)力，下一步還要看地方，如果地方政府改革不及時(shí)跟進(jìn)，簡(jiǎn)政放權(quán)的效果就會(huì)大打折扣。我對(duì)他們說(shuō)，中央政府下了決心，真正做到位，樹(shù)立起標(biāo)桿，地方政府就一定會(huì)按中央的要求去做。在當(dāng)前情況下，要穩(wěn)增長(zhǎng)，簡(jiǎn)政放權(quán)是一個(gè)極為重要的手段。穩(wěn)增長(zhǎng)也是為了保就業(yè)。簡(jiǎn)政放權(quán)、取消和下放行政審批事項(xiàng)，激發(fā)市場(chǎng)活力，讓企業(yè)、社會(huì)更有創(chuàng)造力，就可以帶動(dòng)更多的就業(yè)。如果上動(dòng)下不動(dòng)、頭轉(zhuǎn)身不轉(zhuǎn)，政府職能轉(zhuǎn)變和機(jī)構(gòu)改革就可能變成“假改”、“虛晃一槍”。今年5月份以來(lái)，各地新一輪簡(jiǎn)政放權(quán)取得積極成效，但受地方和部門利益影響，也出現(xiàn)了一些“錯(cuò)放、空放、亂放”等現(xiàn)象。有的只下放復(fù)雜的、管理責(zé)任大的，“含金量”較高的仍然留在手中；有的放權(quán)有水分，動(dòng)輒上百項(xiàng)，但“干貨”不多。這里要強(qiáng)調(diào)的是，在改革過(guò)程中，各地要有全局觀、大局觀，不能打“小算盤”、“小九九”，更不允許“走過(guò)場(chǎng)”、“變戲法”，確保簡(jiǎn)政放權(quán)真正到位、見(jiàn)效。
2. The reform of local governments is part and parcel of overall government reform. Local governments directly interact with businesses and the public, and the rights and interests of market players and the public are realized, safeguarded and developed mainly through the local governments. The local governments have a very important role to play in the whole system of government, accounting for over 90 percent of civil servants and around 85 percent of eventual fiscal expenditures in China. It is particularly true for primary-level governments, which belong to the "last one kilometer", as we often say. Whether the reform of government institutions meets its goal as expected and whether government functions are genuinely transformed depends, to a large extent, on local governments. During our recent field trips and seminars in different localities, we have found that many entrepreneurs are looking at the local governments to deliver what the central government has already committed in power delegation. According to them, the effects of streamlining administration and delegating power at the central level will be greatly compromised if the local governments fail to proceed with corresponding reform in a timely fashion. I assured them that the central government has made up its mind, and that so long as the central government can set a good example of effectively doing what is required, the local governments will surely act to meet the requirements of the central government. Under the current circumstances, streamlining administration and delegating power is a very important means to stabilize growth. And to stabilize growth is also for the sake of ensuring employment. With administration streamlined and power delegated, some powers of administrative approval will be cancelled or delegated, which will energize the market and make the businesses and society more creative, thus generating more jobs. If only the head turns and the body stays put, the transformation of government functions and the institutional reform may become a "fake reform" or a "feinted attempt". Since last May, positive results have been achieved in the new round of efforts to streamline administration and delegate power in various localities. Yet, due to restraints of local and sectoral interests, there have been cases where powers have been wrongly or inappropriately delegated, or where only lip service has been made with no real action. In some places, only the complex powers that involve big responsibilities have been delegated, with the "more valuable power" still retained by the government. In others, there have been exaggerations. They easily claim to have delegated approval power for more than 100 items, yet few of them involve any significant power. I want to stress that in the course of reform, the local governments must take a holistic perspective and bear in mind the overall interests. They should not be narrowly preoccupied with their own local interests, still less are they allowed to play tricks or conduct reform as a mere formality. We must ensure that streamlining administration and delegating power must be effectively delivered and serve its purpose.
（三）地方政府改革對(duì)于保證中央政令暢通、發(fā)揮地方積極性十分重要。這次改革，要進(jìn)一步處理好中央和地方的關(guān)系。一方面要確保中央的政令暢通。把不該管的放下去，這樣就有更多精力把該管的更好地管起來(lái)，這有利于中央的政令暢通。另一方面要把地方政府的積極性充分調(diào)動(dòng)起來(lái)。我國(guó)是單一制國(guó)家，實(shí)行中央統(tǒng)一領(lǐng)導(dǎo)、地方分級(jí)管理的體制。對(duì)中央的大政方針，地方必須統(tǒng)一步調(diào)，不折不扣地貫徹執(zhí)行。同時(shí)還要看到，我國(guó)是一個(gè)大國(guó)，各地情況千差萬(wàn)別，發(fā)展很不平衡，必須從實(shí)際出發(fā)，發(fā)揮地方因地制宜管理經(jīng)濟(jì)社會(huì)的作用。我國(guó)經(jīng)濟(jì)社會(huì)發(fā)展到現(xiàn)在這個(gè)階段，人民群眾的需求越來(lái)越多，層次也不一樣，政府服務(wù)事項(xiàng)也越來(lái)越多，也很復(fù)雜，各地要從實(shí)際出發(fā)，更加積極主動(dòng)，創(chuàng)造性地開(kāi)展工作。“上下同欲者勝”。大家心往一處想，勁往一處使，我們的事情就能辦得更好。
3. The reform of local governments is important to ensure the effective implementation of central government decisions and mobilize the initiative of various localities. In this round of reform, we must further straighten out the relationship between the central and local governments. We need to ensure the effective implementation of central government decisions. The central government should delegate responsibilities that it is not supposed to undertake in order to focus on matters that fall within its mandate. This will make sure that the decisions of the central government are carried out effectively. At the same time, we should fully mobilize the initiative of local governments. China is a unitary state, which practices the system of unified central leadership, with specific responsibilities distributed across different levels of local government. Major policies adopted by the central government must be strictly implemented by all local governments. However, it is also important to recognize that China is a big country, with varying conditions and uneven development across different localities. We need to bear in mind this reality and leverage the role of local governments in managing economic and social development in a way consistent with their own local conditions. At this stage of economic and social development, we are seeing more demands and more differentiated needs from the people. As a result, the services to be provided by the government are also growing in scope and complexity. In line with their respective conditions on the ground, localities should be more proactive and creative in their work. As the saying goes, "Victory can only be achieved when the army share the same goal throughout the ranks". If we can think and work with one heart and one mind, we will be able to do an even better job.
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