朱之鑫：全面正确履行政府职能（中英对照）

二、深刻领会全面正确履行政府职能的总体要求

II. Overall requirements for fulfilling government functions fully and correctly

（一）进一步简政放权

1. Further streamlining administration and delegating power

政府职能转变是深化行政体制改革的核心，是全面正确履行政府职能的基础，要把减少行政审批作为职能转变的突破口，进一步推进简政放权。要围绕党的十八大报告确定的推动政府职能向创造良好发展环境、提供优质公共服务、维护社会公平正义转变的基本要求，推进政府向市场放权，充分发挥市场在资源配置中的决定性作用；推进政府向社会放权，更好发挥社会力量在管理社会事务中的作用；推进中央政府向地方和基层放权，切实发挥中央和地方两个积极性。特别是在资源配置方面，政府要最大限度地避免用行政手段配置各类资源。这就要求从体制机制上理顺政府与市场、政府与社会的关系，用政府权力的减法换取市场和社会活力的加法，激发市场和社会主体的创造活力，增强经济发展的内生动力。

The transformation of government functions represents the core aspect of our efforts to deepen the reform of the administrative system, being the basis on which we will ensure the full and correct fulfillment of government functions. We need to identify cutting the number of items that require government approval as the entry point in our efforts to transform government functions, and work to further streamline administration and delegate power. We need to promote the delegation of power by the government to the market, so that the decisive role of the market in the allocation of resources can be fully exerted. We need to promote the delegation of power by the government to the non-government sector, so that social forces can play a bigger role in the management of social affairs. At the same time, we also need to promote the delegation of power by the central government to local governments, so that we can give full play to the initiative of both the central government and local governments. In particular, we need to make sure that the government refrains, to greatest possible extent, from directly allocating various resources through administrative means. By cutting back the power of the government, we will be able to increase the vigor and vitality of the market and society.

简政放权，必须从减少行政审批事项入手。近年来，我国进行了多次审批制度改革，取得了明显的成效，但行政审批和行政许可的事项仍然过多，审批中的自由裁量权仍然过大，与经济社会发展的要求仍有距离。党的十八大明确要求，把深化行政审批制度改革作为转变政府职能的主要途径。这次《决定》再次强调，“深化行政审批制度改革，最大限度减少中央政府对微观事务的管理，市场机制能有效调节的经济活动，一律取消审批。”这进一步表明了推进行政审批制度改革的决心。今后，凡是市场机制可以有效调节的事项以及社会组织可以替代的事项，凡是公民法人在法律范围内能够自主决定的事项，都不应设立行政许可和行政审批。政府减少审批事项，并不意味着就完全撒手不管了，必要的行政审批要规范管理、提高效率，必须做到标准明确、程序严密、运作透明、制约有效、权责分明，而且要创新政府管理方式，按照“宽进严管”的原则，加强对市场主体、市场活动的监督管理，推进政府管理由注重事前审批转向事中事后监管。政府审批事项减少了，但监管责任更大了，管理任务将更加艰巨、更为复杂。

In working to streamline administration and delegate power, our first task must be to reduce the number of items that are subject to the approval of the government. China has made changes to its administrative approval system on a number of occasions over recent years, achieving significant results in this regard. Despite this, however, there are still too many matters requiring government approval and permission, and there is still too much discretionary authority in administrative approvals. Put simply, China’s administrative approval system is still unable to meet requirements for our economic and social development. The Third Plenary Session of the Eighteenth CPC Central Committee resolved to deepen the reform of China’s administrative approval system. According to the resolution that was adopted at the session, “administration over micro-level matters by the central government will be reduced to the greatest possible extent, while government approvals for matters that market mechanisms can effectively regulate will be cancelled without exception.” From now on, government permission and approval will no longer be required for matters that market mechanisms can effectively regulate, for matters that social organizations can take charge of in place of the government, and for matters that citizens and businesses can independently and lawfully determine. Of course, in reducing the number of matters requiring administrative approval, our intention is not for the government to adopt a hands-off approach to everything; rather, the government will carry out the necessary administrative reviews in a more standardized and efficient way, ensuring that such reviews are performed in a well-standardized, procedure-based, transparent, and effective manner on the basis of well-defined powers and responsibilities. At the same time, we need to adopt innovative new changes in government administration. Following the principle of looser controls over market entry and tighter supervision over market entities, the government needs to strengthen its supervision and management over market entities and market activities, and shift the focus of its attention from ex ante government approval to ongoing and ex post supervision and management.

简政放权，必须改变权力过度集中的局面。市场经济的主体是企业，政府的主要职责是创造良好环境。政府要向企业、社会放权，给市场和社会更大的发挥作用的空间。在强调政府对市场和社会放权的同时，还要注重行政体系内部中央向地方放权、上级向基层放权，减少中央部门对地方和基层过多过细的管理。《决定》指出，“直接面向基层、量大面广、由地方管理更方便有效的经济社会事项，一律下放地方和基层管理。”这不仅有利于调动基层政府的积极性，也有利于增强政府管理和服务的针对性和有效性。

In our efforts to streamline administration and delegate power, we must also work to address the problem of power being overly concentrated in the government. Enterprises constitute the main body of the market economy. Accordingly, the principal role of the government in the market economy should be to create a favorable business environment. The government should delegate power to enterprises and the non-government sector so as to give the market and society more space in which to exert their roles. At the same time, the central government should delegate power to local governments and higher-level authorities should delegate power to lower-level authorities so as to reduce the micromanagement of local governments and communities by the central government. The Decision of the CPC Central Committee on Major Issues Concerning Comprehensively Deepening Reform (hereinafter referred to as the Decision on Comprehensively Deepening Reform) states: “Economic and social matters that directly concern local communities, that are large in volume and extensive in coverage, and that can be more conveniently and effectively managed by localities, are to be placed under the jurisdiction of localities and communities without exception.”

（二）加强政府的战略规划制定、市场监管和公共服务职能

2. Placing stronger emphasis on the roles of the government in formulating strategic plans, regulating market activities, and providing public services

全面正确履行政府职能，一方面需要最大程度减少政府对微观事务的管理职能，从不该管、管不了、管不好的领域中退出来，让市场真正发挥配置资源的决定性作用，从而有效提升市场效率；另一方面也需要政府发挥对经济活动的引导和规范作用，强化政府在战略规划制定、市场监管和公共服务方面的职能，弥补市场本身的不足和缺陷，为市场经济健康发展创造良好环境。《决定》明确提出，“政府要加强发展战略、规划、政策、标准等制定和实施，加强市场活动监管，加强各类公共服务提供。”

In order to fulfill its functions fully and correctly, the government must minimize its involvement in micro-level affairs and pull out of areas that it should not regulate and cannot regulate well. By allowing the market to truly play the decisive role in the allocation of resources, we will be able to achieve an increase in market efficiency. At the same time, the government should continue to guide and regulate economic activities, focus more on formulating strategic plans, regulating the market, and providing public services, and compensate for market deficiencies and market failures. Through these efforts, the government will be able to create a sound environment for the healthy development of the market economy.

当前，从世界范围看，经济全球化深入发展，科技革命和产业变革孕育新突破；从国内看，我国经济增速放缓，产能过剩压力增大，劳动力成本快速上升，资源环境约束更趋强化，对推进经济转型升级提出了更加紧迫的要求。政府必须腾出更多精力抓大事、议长远、谋全局，加强宏观性、综合性、战略性问题研究，强化发展战略、规划、政策、标准的制定和实施。与此同时，随着市场化程度的提高，维护公平竞争的市场秩序也更加迫切，政府必须加强市场活动监管，完善监管体系，维护全国市场的统一开放、公平诚信和竞争有序。政府还要更加注重公共服务，增强基本公共服务供给能力，建设可持续的基本公共服务体系，满足人民群众对教育、就业、社会保障、医疗等方面公共服务日益增长的多样化需求。

Internationally speaking, the trend of economic globalization is continuing to deepen, while new breakthroughs are emerging from an ongoing technological revolution and the continued transformation of industry. Domestically speaking, China’s economic growth is slowing down, pressure from excessive production capacity is mounting, the cost of labor is rising rapidly, and the constraining effect of the environment and resources on China’s economic growth is increasing. The combination of these factors has made the task of transforming China’s economic growth model and upgrading the Chinese economy all the more pressing. Therefore, the government needs to devote more energy to grappling with major issues, considering long-term interests, and drawing up overall plans. It must enhance its analysis of macro-level, comprehensive, and strategic issues, and strengthen its capacity to formulate and implement strategies, plans, policies, and standards for the country’s development. At the same time, as the role of the market continues to increase, the task of safeguarding fair market competition is also becoming increasingly pressing. Therefore, the government must tighten regulation over market activities, improve the measures that it employs in market regulation, and work to safeguard a unified national market that is characterized by fair, honest, and orderly competition. In addition, the government also needs to improve its capacity to provide basic public services. Through the establishment of a sustainable system of basic public services, the government must strive to meet a growing demand for diverse public services in education, employment, social security, and healthcare.

（三）合理界定中央和地方政府职能

3. Appropriately defining the roles of the central and local governments

我国疆域辽阔，区域差异大，地区之间经济社会发展不平衡，中央政府对地方事务管得过多过细，既管不了管不好，也不利于促进地方政府因地制宜有针对性地主动开展工作。要充分调动中央和地方两个积极性，中央政策要尽可能不搞“一刀切”，让地方有施展的空间；地方要强化全国一盘棋的理念，维护中央权威。为了进一步明确中央政府和地方政府的职责划分，《决定》提出要“加强中央政府宏观调控职责和能力，加强地方政府公共服务、市场监管、社会管理、环境保护等职责”，为中央和地方政府更好发挥各自比较优势、加强各自薄弱环节，更好地履行各自职能指明了方向。

Given China’s vast size, significant regional disparities, and unbalanced economic and social development, the micromanagement of local affairs by the central government is not only both unviable and ineffective, but also interferes with the attempts of local governments to manage local affairs on the basis of local conditions. In seeking to ensure that both the central government and local governments are fully motivated, the central government should refrain as much as possible from indiscriminately imposing the same policies on all regions, instead allowing localities more room to display their abilities. At the same time, local governments must safeguard the authority of the central government by adhering to a nationwide perspective. While ensuring that the central government plays a stronger and more effective role in macro control, we should also ensure that local governments assume greater responsibility for public services, market regulation, social administration, and environmental protection.

加强中央政府宏观调控职责，有着很强的现实紧迫性和全局意义。近年来，我国经济发展出现了一些新变化，实现经济增长、扩大就业、稳定物价、保持国际收支基本平衡这四个目标的难度增大，宏观调控面临更加复杂的局面。这就要求中央政府进一步改善和加强宏观管理，强化发展规划制订、经济发展趋势研判、制度机制设计、全局性事项统筹管理、体制改革统筹协调等职能，完善宏观调控体系，加强宏观调控目标和政策手段机制化建设，科学确定调控目标和政策取向，丰富创新调控手段，健全调控政策制定和决策机制，形成合理的宏观调控政策框架，增强调控的科学性、预见性，强化调控措施的权威性、有效性，促进经济社会平稳健康发展。

Strengthening the responsibilities of the central government in macro control is a pressing task, one that will have an important bearing on China’s overall development. Owing to a number of changes that have taken place in China’s economy in recent years, it has become more difficult for the government to achieve its four objectives of securing economic growth, keeping prices stable, creating jobs, and maintaining the balance of international payments. As the situation facing macro control becomes increasingly complex, the central government needs to further improve and strengthen macro management, establish stronger mechanisms for defining macro-regulatory targets and policy tools, and refine mechanisms for formulating macro-control policies and making macro-control decisions. In addition, a sound framework of macro-control policies needs to be put in place so that macro control can become more scientific and proactive and so that macro-control measures can become authoritative and effective. By doing so, we will promote steady and sound social and economic development.

加强地方政府公共服务、市场监管、社会管理、环境保护等职责，有利于更好地发挥地方政府贴近基层、就近管理的优势。地方政府加强公共服务，就要继续增加财政对公共服务支出，扩大公共服务覆盖范围，逐步实现基本公共服务均等化，更好地发挥政府提供公共服务、促进社会公平正义的作用。针对当前市场秩序中存在的制假售假、商业欺诈等突出问题，地方政府更要注重加强市场监管，特别是要将涉及人民群众身体健康和生命安全的食品、药品等产品质量安全作为监管重点。社会管理的重点在基层，地方政府要针对人民群众利益诉求更加多样化和经常化的特点，加强社区建设和基层组织建设，发挥各类社会组织的作用，完善基层社会管理服务，形成源头治理、动态管理、应急处置相结合的社会管理机制，维护社会公平正义与和谐稳定。地方政府还要加强环境保护职责，更加主动地采取措施，解决突出问题，更好地满足人民群众呼吸洁净空气、喝干净水、吃安全食品的愿望。

Giving local governments greater responsibilities will help them to take full advantage of their close proximity to the public and their ability to exercise direct management. In an effort to strengthen public services, local governments need to increase spending on public services, expand the coverage of public services, and work to gradually make the delivery of basic public services more equitable. Local governments need to attach still more importance to strengthening market regulation, focusing particularly on the quality and safety of products that are vital to people’s health and safety, such as food and drugs. As local communities are the priorities of social administration, local governments need to strengthen the development of communities and community-level social organizations, give play to the roles of various social organizations, and improve social administration and services at the community level in an effort to safeguard social fairness, justice, harmony, and stability. In addition, local governments should also play a bigger role in environmental protection. By taking more active steps to address prominent issues, local governments must do a better job of satisfying public demands for clean air, clean water, and safe food.

（四）推广政府购买服务

4. Promoting the government procurement of public services

创新政府服务方式，将适合市场化方式提供的公共服务事项，交由具备条件、信誉良好的社会组织、机构和企业等承担，推动公共服务提供主体多元化，这是推动政府职能转变，推进政事、政社分开，建设服务型政府的必然要求，也是提高公共服务质量和效率、办事不养人，建设创新型政府的重要途径。《决定》明确要求，“凡属事务性管理服务，原则上都要引入竞争机制，通过合同、委托等方式向社会购买。”这就要求进一步放开公共服务的市场准入，逐步建立比较完善的政府购买服务制度。创新公共服务提供方式，更多实行政府购买服务，按照公开、公平、公正原则，严格程序，竞争择优，确定承接主体，并对承接主体实行优胜劣汰。这不仅有利于解决一些领域公共服务产品短缺、质量和效率不高等问题，也有利于形成与经济社会发展相适应、高效合理的公共服务资源配置体系和供给体系，使人民群众享受到更加丰富优质便捷的公共服务。

To build a service-oriented government, it is essential that we make innovative changes to the way that government services are provided. The Decision on Comprehensively Deepening Reform clearly states: “In principle, all logistic operations and services should be subject to competition and procured from the non-government sector through the execution of contracts, entry into entrustment agreements, or by other means.” This means that restrictions on market access to public services need to be further relaxed, that a sound system for the government procurement of services needs to be gradually established, and that service providers should be chosen via open and fair competition, with services being procured from the best provider. Doing so will be conducive to addressing the shortage of public products and services in certain areas; to establishing efficient and reasonable systems for the distribution and supply of public service resources; and to ensuring that the public is able to enjoy better, more diverse, and more convenient public services.

（五）加快事业单位分类改革

5. Accelerating the reform of public institutions on a per-category basis

加快事业单位分类改革是转变政府职能的内在要求。事业单位改革与行政体制改革相互联系、相互影响。推进事业单位分类改革在很大程度上也是政府自身改革的延伸或组成部分，理顺政府与事业单位之间的关系，本身就是转变政府职能的重要内容。《决定》强调，要“推动公办事业单位与主管部门理顺关系和去行政化，创造条件，逐步取消学校、科研院所、医院等单位的行政级别”，“建立事业单位法人治理结构，推进有条件的事业单位转为企业或社会组织”。这就要求加快事业单位分类改革，积极探索政事分开、管办分离的有效实现形式；探索建立多种形式的法人治理结构，健全事业单位内部决策、执行和监督机制。通过改革，更加明确事业单位的功能定位，强化公益属性，促使事业单位在完善公共服务方面发挥更大作用，更好地实现政府的公共服务目标。

Accelerating the reform of public institutions on a per-category basis represents an essential aspect of our efforts to transform government functions. We will work to clearly define the relationship between public institutions and the government departments that are responsible for overseeing their performance, and cancel the status of public institutions as quasi government institutions. Over a period of time, we will rescind the administrative ranks that are granted to schools, research institutes, and hospitals, establish legal person governance structures in public institutions, and promote the transformation of eligible public institutions into enterprises or social organizations. This requires that we accelerate the reform of public institutions on a per-category basis, and work out effective means of separating government administration from the operation of public institutions and supervision from operation. It also requires that we work out ways of establishing various forms of legal person governance structure, and formulate sound internal mechanisms for decision-making, implementation, and supervision in public institutions. Through the implementation of reform, we will clearly define the functions and positions of public institutions, highlight their non-profit nature, and allow them to play a bigger role in improving public services. By doing so, we will be better disposed to realize the goals that the government has set with regard to public services.