国企分类改革下国有出资人模式的重构

分类改革是我国此轮国企改革的核心。要实现分类改革的目标,必须对关乎国企管理体制的国有出资人模式进行重新审视。我国国有出资人模式主要有集权模式和分权模式两种。但无论是以国资委为代表的集权出资模式,还是以行业或地域为标准的分权出资模式,其主要缺陷在于没有回应国企分类改革的要求,没有区分商业类国企与公益类国企而分别构建出资人制度。实际上,在国企分类改革下,有必要确立集权模式与双重模式并行的混合出资人模式。针对商业类国企采国资委集权出资模式,由国资委专司“管资本”,剥离其监管企业的职能;而针对公益类国企采功能双重出资模式,由多个部门分工协作,既“管资本”也“管企业”,实现有效监管的职能。

Reconstruction of State-owned Investor under the Classified Reform of State-owned Enterprises

The classified reform is the core of the reform of state-owned enterprises. To realize the goal of the classified reform, we must re-examine the mode of the state-owned investor related to the management system of state-owned enterprises. There are two modes of state-owned investor in China: the centralization mode and the decentralization mode. However, the main defects of both the centralization mode represented by State-owned Assets Supervision and Administration Committee (SASAC) and the decentralized mode based on industry or region are that they do not respond to the requirements of the classified reform, so the system of state-owned investor was not separately constructed according to the distinction between profit-only entities and those for public welfare as well. In fact, under the classified reform of state-owned enterprises, it is necessary to establish the hybrid mode of state-owned investor with two parallel modes. For profit-only entities, the mode of centralization investor by SASAC should be adopted, and SASAC should be responsible for “managing capital” with the supervisory function divested. For those dedicated to public welfare, the dual-function model should be adopted, and multiple agencies work together for “managing capital” as well as “managing enterprises” in order to achieve the goal of effective supervision.