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    學壇新論

    以信用建設為重點營造國際一流營商環境

    楊柳  2019年07月05日08:41  來源:光明日報

      信用是市場經濟的基石。當前,我國市場運行有序、消費需求旺盛、產業體系完備、政策開放透明,仍然是世界上最受歡迎的投資目的地,已經具備營造國際一流營商環境的堅實基礎。加快社會信用體系建設,是構建以信用為核心的新型監管機制的重要手段,是培育經濟新增長點和新動力的關鍵之舉,是踐行習近平總書記“營造國際一流營商環境”要求、推動經濟實現高質量發展的重要突破口。

      營商環境評價的核心和基礎是社會信用體系建設

      我國經濟已由高速增長階段轉向高質量發展階段,正處在轉變發展方式、優化經濟結構、轉換增長動力的攻關期,建設現代化經濟體系是跨越關口的迫切要求和我國發展的戰略目標。推動經濟高質量發展迫切需要良好的營商環境支撐。作為“支配商業活動所必需的政策、法律、制度、規則等的一種復雜的融合體”,營商環境是經濟發展的軟實力,也是各國各地區提升國際競爭力的關鍵要素。我國進一步優化營商環境,就是要通過不斷完善相關制度,在遵循市場規律的基礎上,發揮好政府的服務職能,釋放企業主體的活力,實現經濟的公平、高效、可持續發展。

      營商環境評價的核心和基礎是社會信用體系建設。現代市場經濟的本質是信用經濟。市場主體守信履約,且相互信任,形成良好的信用鏈條,是維系錯綜復雜的市場交換關系和正常有序的市場秩序的必要條件,也是形成良好營商環境的基礎條件。

      在我國,社會信用體系是中國特色社會主義市場經濟體制和社會治理體系的重要組成部分。它以法律、法規、標準和契約為依據,以健全覆蓋社會成員的信用記錄和信用基礎設施網絡為基礎,以信用信息合規應用和信用服務體系為支撐,以樹立誠信文化理念、弘揚誠信傳統美德為內在要求,以守信激勵和失信約束為獎懲機制,目的是提高全社會的誠信意識和信用水平。

      信用體系是由征信系統、信用制度及其運行機制構成的有機整體。作為一種信息共享機制和有效的社會治理機制,信用體系通過對失信行為的記錄、揭露、傳播和預警,旨在解決經濟社會生活中信用信息不對稱和信用交易成本過高的問題,懲罰和警誡失信行為,褒揚和獎勵誠實守信,促進經濟和社會健康發展。健全的社會信用體系能夠實現信用信息的充分共享,建立跨部門協同監管和聯合獎懲的信用約束機制;能夠全方位揭示信用風險,充分發揮市場在資源配置中的決定性作用,為信用優良者創造更多、更好的發展條件。正因如此,世界各國都把社會信用體系是否健全作為營商環境評價的核心和基礎因素。

      我國社會信用體系建設取得突破性進展

      近年來,我國社會信用體系建設取得突破性進展,有關方面合力推進社會信用體系建設,在支撐“放管服”改革、促進金融服務實體經濟、維護市場秩序、優化營商環境、提升社會誠信意識等方面發揮了積極而重要的作用。

      頂層設計和運行機制基本形成。自2014年國務院《社會信用體系建設規劃綱要(2014—2020年)》印發以來,在社會信用體系建設部際聯席會議各成員單位推動下,信用建設不斷實現新突破。中央深改組會議、國務院常務會議上涉及信用的議題頻頻出現,多個信用建設綱領性文件陸續印發。截至目前,社會信用體系的頂層設計和運行機制已基本形成,“信用管終身”的路線圖日漸明晰。

      信用基礎設施建設加快推進。近年來,以支撐簡政放權為重點的信用基礎設施建設加快推進,統一社會信用代碼已實現全覆蓋,多層次信用信息歸集共享體系建成并發揮重要作用,行政處罰行政許可等信用信息公示水平大幅提高,推動行政審批加快辦理的信用承諾工作正在廣泛開展。

      信用聯合獎懲效果初現。守信聯合激勵和失信聯合懲戒機制,是社會信用體系建設的核心運行機制。自《國務院關于建立完善守信聯合激勵和失信聯合懲戒制度加快推進社會誠信建設的指導意見》印發以來,60多個部門累計簽署40個聯合獎懲合作備忘錄,目前還有12個備忘錄處于征求意見和會簽階段,推出聯合獎懲措施100多項。截至2018年6月底,累計限制乘坐飛機約1222萬人次,限制乘坐列車高等級席次約458萬人次,限制擔任企業主要負責人、董事、監事和高管約28.6萬人次。失信企業限制獲得政府性資金支持近千億元。

      加快推進社會信用體系建設,營造國際一流營商環境

      全面推進誠信建設,實現經濟高質量發展,必須加快推進社會信用體系建設。

      圍繞推進“放管服”改革,加快構建以信用為核心的新型監管機制,重點圍繞信用承諾和信息公示方面開展工作。在信用承諾方面,結合“放管服”改革和“一網通辦”工作,大面積推行審批替代型或容缺受理型信用承諾,通過信用承諾部分取代前置手續、審批報件。研究制定相關領域信用承諾替代審批制度項目清單,明確可以開展容缺受理服務的非即辦類審批服務事項。加強信息公示方面,充分利用信用中國以及各地方信用網站,開展包括醫療衛生、交通、教育、旅游、金融、環保、食品藥品監管等人民群眾關心關注的重點民生領域信用信息的公示,以公示帶動采集、以公示帶動共享、以公示帶動獎懲,實現信用信息采集和公示的一體化、長效化。

      加強信用信息共享,大力發展信用服務業。推進政府各類信用數據歸集,開展信用大數據試點示范,實現公共信用信息和社會第三方信用信息的共建共享共用。出臺促進信用服務業創新發展政策,培育具有較強市場公信力和國際影響力的綜合信用服務機構,加快推進政府數據與市場主體數據融合開放,支持信用領域大數據、區塊鏈、人工智能等技術創新,推動信用產品創新和信用服務市場發展。

      加大信用應用探索創新力度,為“信用管終身”貢獻經驗。2018年5月,中共中央辦公廳、國務院辦公廳印發的《關于深入推進審批服務便民化的指導意見》提出,要切實加強事中事后監管,建立健全失信聯合懲戒機制,實現“事前管標準、事中管檢查、事后管處罰、信用管終身”。實現信用管終身,關鍵在于信用產品和信用應用,為此,需加大信用應用探索創新力度,一方面,鼓勵更多城市開發符合自身城市定位的市民個人信用積分;另一方面,讓守信企業可以在優惠政策、財政資金以及金融信貸、市場交易等方面得到更多機會。總之,要充分釋放信用價值,提升社會對良好信用的獲得感。

      全面推進政務誠信建設,優化提升營商環境。政務誠信是指政府要對社會、對公民恪守信用準則,其核心是依法行政、守信踐諾,發揮政府在誠信建設中的示范表率作用。深入開展政務誠信建設,進一步提升政府公信力,有利于建立健全以信用為核心的新型市場監管機制,建立一支守法守信、高效廉潔的公務員隊伍,樹立政府公開、公正、誠信、廉潔的良好形象,有利于營造風清氣正的社會風氣,培育良好經濟社會發展環境。

       (作者:楊柳,系中央黨校〔國家行政學院〕黨建部博士后)

    (責編:孫爽、程宏毅)


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