"十一五规划"开局节能、减排指标"失灵"的制度分析

"十一五"开局之年节能、减排指标双双失灵引人深思。以政策阶段视角和正式-非正式规则视角审视"十一五规划"中主要指标的制定过程和执行过程,发现规划编制过程中,正式制度赋予地方政府的自由度被非正式的削减,导致地方政府在指标制定过程中缺乏表达意志的能力;在规划实施过程中,目标责任制表面上强化了地方政府的义务,但中央政府却无法提供可预期的责任机制。在此基础上提出相关的政策建议。

An Institutional Analysis on Failure to Achieve Energy Conservation Target and Pollutant Emission Control Target at the Beginning Stage of the 11th Five - Year Plan

In the first year of China's 11 th five-year plan,both energy conservation target and pollutant emission con- trol target failed to be realized.This paper probes into the target-making process and target-implementing process to see what the formal rules are and how they operate informally.It is demonstrated that,on one side,local governments have little opportunity to present their willingness in the target-making process though formal rules do give them enough space,and on the other side,target-based responsibility system the legal effectiveness of which is in vagueness can not give local governments proper expectation.Based on the analysis above,corresponding countermeasures are put forward.