本文關(guān)鍵詞：我國(guó)開(kāi)發(fā)區(qū)建設(shè)的法治化研究　出處：《武漢大學(xué)》2014年博士論文　論文類型：學(xué)位論文

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【摘要】：開(kāi)發(fā)區(qū)是我國(guó)改革開(kāi)放的試驗(yàn)田,不斷探索正確處理我國(guó)政府、市場(chǎng)和社會(huì)之間的關(guān)系,已成為我國(guó)政治經(jīng)濟(jì)體制中的重要一環(huán)。目前,開(kāi)發(fā)區(qū)是城市規(guī)劃、經(jīng)濟(jì)、管理等學(xué)科的重要研究對(duì)象,相關(guān)文獻(xiàn)汗牛充棟,但是法學(xué)研究總體滯后,影響了開(kāi)發(fā)區(qū)的制度供給,導(dǎo)致開(kāi)發(fā)區(qū)法律身份不明、開(kāi)發(fā)區(qū)脫法治化的增長(zhǎng)和“魅力型”的創(chuàng)新。開(kāi)發(fā)區(qū)在中國(guó)改革開(kāi)放的重要地位和法治可信承諾不足的矛盾,必將制約開(kāi)發(fā)區(qū)的可持續(xù)發(fā)展。本文通過(guò)規(guī)范分析和實(shí)證分析,從開(kāi)發(fā)區(qū)規(guī)則表達(dá)轉(zhuǎn)型、管理機(jī)構(gòu)身份轉(zhuǎn)型、功能定位轉(zhuǎn)型、治理結(jié)構(gòu)轉(zhuǎn)型等四個(gè)方面進(jìn)行論述,旨在探討我國(guó)開(kāi)發(fā)區(qū)建設(shè)的法治化走向。文章具體分為五章,現(xiàn)摘要如下： 第一章緒論。第一,對(duì)中國(guó)開(kāi)發(fā)區(qū)現(xiàn)象進(jìn)行簡(jiǎn)要闡述,介紹開(kāi)發(fā)區(qū)的由來(lái)、戰(zhàn)略使命、績(jī)效表現(xiàn)。為了處理好改革、發(fā)展和穩(wěn)定之間的關(guān)系,國(guó)家以開(kāi)放促改革、促發(fā)展、促創(chuàng)新,在開(kāi)發(fā)區(qū)這一特定功能區(qū)試點(diǎn)商品經(jīng)濟(jì)規(guī)則,對(duì)外開(kāi)放,引進(jìn)外資,參與國(guó)際分工,形成行政區(qū)與功能區(qū)的雙軌結(jié)構(gòu)體制,不斷推進(jìn)市場(chǎng)化、國(guó)際化、法治化。開(kāi)發(fā)區(qū)歷經(jīng)30年的發(fā)展,在改革創(chuàng)新、經(jīng)濟(jì)規(guī)模、區(qū)域貢獻(xiàn)力、就業(yè)安排、科技研發(fā)、參與區(qū)域和國(guó)際關(guān)系治理等方面,取得了驕人的業(yè)績(jī)。第二,介紹目前開(kāi)發(fā)區(qū)理論研究現(xiàn)狀,說(shuō)明法學(xué)研究現(xiàn)狀,明確本課題研究意義、研究方法、研究重點(diǎn)。目前,開(kāi)發(fā)區(qū)研究已成為建筑學(xué)尤其是城市規(guī)劃、經(jīng)濟(jì)管理的顯學(xué),但是法學(xué)對(duì)開(kāi)發(fā)區(qū)的研究只發(fā)出微弱的聲音。由于開(kāi)發(fā)區(qū)的法學(xué)理論儲(chǔ)備不足,影響了開(kāi)發(fā)區(qū)的規(guī)范發(fā)展和制度供給。為規(guī)范開(kāi)發(fā)區(qū)發(fā)展,法學(xué)研究應(yīng)進(jìn)行深耕,做好開(kāi)發(fā)區(qū)建設(shè)法治化轉(zhuǎn)型的理論儲(chǔ)備。 第二章開(kāi)發(fā)區(qū)規(guī)則“表達(dá)”：從政策主導(dǎo)走向法律主導(dǎo)。第一,分析開(kāi)發(fā)區(qū)當(dāng)前制度表達(dá)的政策化。開(kāi)發(fā)區(qū)是我國(guó)社會(huì)主義市場(chǎng)經(jīng)濟(jì)體制轉(zhuǎn)型過(guò)程中的重要一環(huán),先行先試市場(chǎng)規(guī)則,探索各種改革開(kāi)放創(chuàng)新舉措,但是制度安排或“表達(dá)”政策主導(dǎo),法治滯后。在政策主導(dǎo)轉(zhuǎn)型的總體框架下,我國(guó)開(kāi)發(fā)區(qū)制度安排表現(xiàn)出以政策調(diào)整為主、中央統(tǒng)一立法缺失、地方立法資源分散、立法內(nèi)容不全面、立法政策化趨向；開(kāi)發(fā)區(qū)設(shè)立依據(jù)政策化、設(shè)立標(biāo)準(zhǔn)政策化、管委會(huì)特權(quán)配置政策化、責(zé)任追究政策化、管委會(huì)性質(zhì)界定政策化。第二,分析開(kāi)發(fā)區(qū)制度供給滯后引發(fā)的問(wèn)題。當(dāng)前開(kāi)發(fā)區(qū)是“政策規(guī)則的選擇”,地方立法難以滿足開(kāi)發(fā)區(qū)先行先試需求,制度供給短缺,引發(fā)出了一系列問(wèn)題,包括：政區(qū)化,機(jī)構(gòu)設(shè)置行政區(qū)化,向傳統(tǒng)體制復(fù)歸;違法的稅收競(jìng)爭(zhēng),滋生開(kāi)發(fā)區(qū)尋租,造成開(kāi)發(fā)區(qū)熱,自我授權(quán),道德化創(chuàng)新,權(quán)力缺乏有效制約；農(nóng)民土地權(quán)利保障問(wèn)題,勞工權(quán)益保障問(wèn)題,弱勢(shì)群體權(quán)利缺乏有效保障。第三,闡述開(kāi)區(qū)的應(yīng)然制度表達(dá),法律主導(dǎo)化轉(zhuǎn)型。我國(guó)開(kāi)發(fā)區(qū)已經(jīng)在法治建設(shè)中做出了積極探索,包括：率先明確法治“法不禁止即可為”原則,率先規(guī)定商品經(jīng)濟(jì)運(yùn)行規(guī)則,率先進(jìn)行服務(wù)型行政立法,推動(dòng)法律監(jiān)督機(jī)制創(chuàng)新,推動(dòng)法律糾紛解決機(jī)制創(chuàng)新,推動(dòng)依法治區(qū)。在法治國(guó)家（地區(qū)）,強(qiáng)調(diào)“法律下的自由”,美國(guó)、臺(tái)灣、日本等境外開(kāi)發(fā)區(qū)立法先行。我國(guó)開(kāi)發(fā)區(qū)建設(shè)應(yīng)向法治化轉(zhuǎn)型,制定國(guó)家級(jí)開(kāi)發(fā)區(qū)統(tǒng)一立法,修訂《地方組織法》。因?yàn)殚_(kāi)發(fā)區(qū)自身是“法治規(guī)則下的選擇”、法治才是開(kāi)發(fā)區(qū)選擇的可信承諾、開(kāi)發(fā)區(qū)“試錯(cuò)權(quán)”需要法治保障。 第三章開(kāi)發(fā)區(qū)功能定位：從“為經(jīng)濟(jì)而增長(zhǎng)”走向“以自由看待發(fā)展”。第一,分析開(kāi)發(fā)區(qū)實(shí)然的經(jīng)濟(jì)主導(dǎo)功能定位和競(jìng)爭(zhēng)體制安排。無(wú)論是經(jīng)濟(jì)技術(shù)開(kāi)發(fā)區(qū)、高新區(qū)、新的國(guó)家戰(zhàn)略功能區(qū)都以經(jīng)濟(jì)功能為主導(dǎo)；中國(guó)的經(jīng)濟(jì)分權(quán)和政治集權(quán)的大國(guó)治理結(jié)構(gòu)制度安排創(chuàng)造了競(jìng)爭(zhēng)性的“增長(zhǎng)市場(chǎng)”,開(kāi)發(fā)區(qū)是所在區(qū)域經(jīng)濟(jì)競(jìng)爭(zhēng)的主要抓手,其超自主體制安排增強(qiáng)了開(kāi)發(fā)區(qū)的競(jìng)爭(zhēng)力。第二,分析開(kāi)發(fā)區(qū)經(jīng)濟(jì)社會(huì)功能轉(zhuǎn)向的背景和方向。歷經(jīng)30年發(fā)展,創(chuàng)造了開(kāi)發(fā)區(qū)奇跡。開(kāi)發(fā)區(qū)已從單一的工業(yè)園區(qū)走向產(chǎn)城融合的城市新區(qū),受阿瑪?shù)賮啞ど淖杂砂l(fā)展觀和權(quán)利貧困論的啟發(fā),發(fā)展型社會(huì)政策理論的興起,國(guó)家對(duì)開(kāi)發(fā)區(qū)戰(zhàn)略定位向社會(huì)功能的微調(diào)和開(kāi)發(fā)區(qū)自身的健康發(fā)展以及在社會(huì)建設(shè)中的探索,開(kāi)發(fā)區(qū)應(yīng)“以自由看待發(fā)展”,轉(zhuǎn)向經(jīng)濟(jì)社會(huì)功能并重,推進(jìn)“從農(nóng)民走向市民”。 第四章開(kāi)發(fā)區(qū)管理機(jī)構(gòu)“身份”：從國(guó)家行政主體走向社會(huì)行政主體。第一,分析開(kāi)發(fā)區(qū)管理機(jī)構(gòu)的制度創(chuàng)新實(shí)踐。開(kāi)發(fā)區(qū)行政管理機(jī)構(gòu)大都稱為管理委員會(huì),極少數(shù)稱之為管理局。開(kāi)發(fā)區(qū)管委會(huì)在自身建設(shè)上已作出積極創(chuàng)新,政府治理理念的邊際創(chuàng)新,從管制思維走向親商思維,從以物為本走向以人為本,從人治思維走向法治思維,還有政府管理體制的邊際創(chuàng)新。第二,分析開(kāi)發(fā)區(qū)管委會(huì)目前的身份安排。目前,我國(guó)正式規(guī)則和法學(xué)理論是從單一政府管理思維出發(fā),從國(guó)家行政主體的視角界定或分析開(kāi)發(fā)區(qū)管委會(huì)的性質(zhì),如一級(jí)人民政府、地方政府的職能部門、地方政府的派出機(jī)關(guān)、派出機(jī)構(gòu)、法律、法規(guī)授權(quán)組織,但也有個(gè)別論述將開(kāi)發(fā)區(qū)管理機(jī)構(gòu)界定為社會(huì)行政主體,提出法定機(jī)構(gòu)和公務(wù)法人的論述。第三,論述開(kāi)發(fā)區(qū)管委會(huì)公務(wù)法人的社會(huì)行政主體身份轉(zhuǎn)型方向。公務(wù)法人是指依據(jù)公法設(shè)立,在政府機(jī)構(gòu)之外執(zhí)行某種行政職能且獨(dú)立承擔(dān)權(quán)利義務(wù)的公法人。理論基礎(chǔ)包括公務(wù)理論、行政分權(quán)理論、新公共管理運(yùn)動(dòng)、治理理論。公務(wù)法人契合我國(guó)權(quán)力不斷調(diào)收的頂層設(shè)計(jì)、滿足區(qū)域治理需求、彰顯社會(huì)主義制度競(jìng)爭(zhēng)優(yōu)勢(shì)的創(chuàng)新要求。 第五章開(kāi)發(fā)區(qū)治理結(jié)構(gòu)：從單一政府管理走向多元協(xié)作治理。第一,分析開(kāi)發(fā)區(qū)單一政府管理模式的現(xiàn)況。政府主導(dǎo)單一模式的特征表現(xiàn)為規(guī)劃決策的行政傲慢、土地獲取的“掠奪之手”、區(qū)域租金的政策創(chuàng)造、治理結(jié)構(gòu)的行政偏向。開(kāi)發(fā)區(qū)治理模式在實(shí)踐中表現(xiàn)出多樣化模式,如管委會(huì)集中治理型模式、協(xié)作型管理模式、區(qū)域政府間協(xié)同治理型模式、多類管委會(huì)協(xié)同治理型模式、企業(yè)主導(dǎo)型和混合型模式。內(nèi)部治理也有邊際創(chuàng)新,包括管理機(jī)構(gòu)企業(yè)化、公共產(chǎn)品生產(chǎn)供給多元化、非強(qiáng)制性行政行為探索、開(kāi)發(fā)區(qū)行政服務(wù)化、探索區(qū)域治理、行業(yè)協(xié)會(huì)的治理參與。第二,闡述開(kāi)發(fā)區(qū)多元協(xié)作治理轉(zhuǎn)型。論述開(kāi)發(fā)區(qū)多元治理的分工和產(chǎn)業(yè)集群理論基礎(chǔ),提出轉(zhuǎn)變政府職能,探索負(fù)面權(quán)利清單和正面權(quán)力清單的兩張清單模式的有限政府治理,產(chǎn)業(yè)規(guī)劃引導(dǎo)、市場(chǎng)監(jiān)管、共同服務(wù)的有效政府治理;市場(chǎng)體系建設(shè)、政企分開(kāi)的市場(chǎng)治理,由市場(chǎng)在資源配置中起決定性作用；推行行業(yè)自組織的社會(huì)治理。
[Abstract]:The development zone is an important part of our country ' s political economy system . The development zone is an important research object in our country ' s political economy system . The development zone is an important research object of city planning , economy , management and so on . In order to deal with the relationship between reform , development and stability , in order to deal with the relationship between reform , development and stability , the country has achieved remarkable achievements in reform , innovation , economic scale , regional contribution , employment arrangement , scientific research and development , participation in regional and international relations , etc . At present , the research of the development zone has become the development of architecture , especially in city planning and economic management , but the research of the development zone only sends a faint sound . The development zone is an important part of the transformation of the socialist market economy system in China . The development zone is an important part of the transformation of the socialist market economy system in China . The development zone of our country has made a positive exploration in the construction of the rule of law , including : first , defining the rule of law , establishing the rules of economic operation , promoting the innovation of legal supervision mechanism , promoting the innovation of legal supervision mechanism , promoting the innovation of legal supervision mechanism , promoting the innovation of legal supervision mechanism , promoting the innovation of legal supervision mechanism , promoting the innovation of legal supervision mechanism , promoting the innovation of legal supervision mechanism , and revising the legislation of local organization . The second part analyzes the background and direction of the development of the economic and social function of the development zone . Chapter IV Identity of Development Zone Management Organization On the basis of public law , the administrative organ of the development zone has made positive innovation , the marginal innovation of the idea of government governance and the marginal innovation of government management system . At present , the official rules and jurisprudence theory of the development zone are defined as the main body of social administration , and the public legal person who is independent of the rights and obligations . The theory foundation includes the public service theory , the administrative decentralization theory , the new public administration movement and the governance theory . Chapter V governance structure of development zone : from single government management to multi - element cooperative governance . First , to analyze the status of single government management mode in development zone . The government - dominated single model is characterized by administrative arrogance of planning decision - making , land acquisition ' s " pillaging hand " , regional government cooperative governance model , multi - category management committee coordinated management mode , enterprise leading type and mixed mode .

【學(xué)位授予單位】：武漢大學(xué)
【學(xué)位級(jí)別】：博士
【學(xué)位授予年份】：2014
【分類號(hào)】：D922.1
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本文編號(hào)：1422128