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Wednesday, June 09, 2021

上海浦东新区或将拥有独立法规 护航“大胆试、大胆闯、自主改”

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素有“改革开放风向标”之称的上海浦东新区即将迎来更加完善的法治保障体系,为打造社会主义现代化建设引领区和“大胆试、大胆闯、自主改”的先行探索“保驾护航”。

6月7日,十三届全国人大常委会第二十九次会议开幕。据新华社报道,会议审议了国务院关于提请审议关于授权上海市人大及其常委会制定浦东新区法规的决定草案的议案。根据浦东新区改革创新实践的需要,制定浦东新区法规并在浦东新区实施,以进一步支持浦东新区“大胆试、大胆闯、自主改”相适应的法治保障体系,推动浦东新区高水平改革开放,打造社会主义现代化建设引领区。

这也意味着,浦东新区未来或将拥有独立的法规。受此消息影响,6月8日,上海本地股早盘大涨,板块指数放量创10个月来的新高,其中陆家嘴涨停,浦东金桥、上海临港、市北高新和浦东建设等也跟涨。

“当前,国家改革开放已经步入深水区,要进一步推进并深化改革开放,其中的一个重要方向便是扩大地方的自主权。这有助于激发地方在改革创新上的动力和积极性。”6月8日,中国社会科学院工业经济研究所工业布局与区域经济研究室主任陈耀在接受《中国经营报》记者采访时表示,浦东新区在拥有独立法规后将拥有更大的自主性,而赋予上海浦东新区更大权限的原因,则是由于其在国内具有特殊地位。

打造制度创新“试验田”

记者梳理发现,当前国内共有19个国家级新区,而浦东新区作为国内最早成立的国家级新区,具有特殊的地位。

据了解,浦东新区在1990年4月18日宣布开发开放后,一直走在国内改革开放的前沿。此后,2013年9月29日开启上海自贸区建设,以及2019年8月20日正式设立临港新片区,出台配套条例和赋予贸易自由、投资自由、运输自由、航运自由、资金自由、人才择业自由等相关制度规定,也对浦东新区发展起到了重要的推动作用。

不过,在多位专家看来,在某种意义上,上述举措都不及地方法规立法更具有突破性意义。

中国区域科学协会理事长、中国宏观经济研究院研究员、中国社会科学院大学博士生导师肖金成向记者解释道,国家级新区属于“特殊类型区”,而设立国家级新区的目的除了促进产业集聚、经济发展、城市开发,还在于打造制度创新的“试验田”。

据介绍,国家级新区由国务院批复设立,体现国家级战略和新区发展需要,拥有副省级管理自主权限。作为“特殊类型区”,部分国家级新区由于行政体系具有特殊性,因此需要制定合适的法律和法规,一般由全国人大常委会授权地方人大常委会通过并发布法律、法规和规章。

“深圳经济特区便是先例。在上世纪90年代,深圳市人大常委会和人民政府便被授权制定当地的法规,在深圳特区内实施和区外有所区别的法律法规,支持其自主创新。此前,天津市人大常委会在2002年也通过了天津滨海新区的相关条例。”肖金成表示,浦东新区更像深圳特区,通过全国人大的授权,让新区人民代表大会或常委会制定并发布法规和规章,具有十分重要的意义。

中欧陆家嘴国际金融研究院副院长刘功润也向记者表示:“全国人大授权上海市人大及其常委会制定浦东新区法规,恰恰体现了在新时代历史方位下深入推进高水平制度型开放的根本要求,即完善立法以适配新发展所需的高水平制度供给体系。”

刘功润告诉记者,在改革开放大潮中取得巨大成绩的同时,浦东新区开发开放也已经到了亟须“再创业、再改革”的深水区、无人区。国家赋予浦东新区打造社会主义现代化建设引领区的使命并据此完善立法,足见国家推动浦东新区“改革再出发”的决心和力量。

刘功润指出,法治保障体系构成了营商环境的底色,而营商环境是企业生存发展的土壤,也是开放合作的基础。“在当前全球疫情和世界经济形势仍然严峻复杂的形势下,我国始终着力打造市场化、法治化和国际化的营商环境,而浦东新区作为营商环境的国际前沿窗口,其营商法治环境的持续优化将释放出重要信号,让国际投资者感受到更少的束缚和障碍、竞争环境更加公平、合法权益也更有保障。这对进一步引领改革预期,推动高水平改革开放意义深远。”刘功润表示。

“四大体系”护航引领区建设

事实上,为浦东新区的创新发展提供法治保障,是浦东新区打造“社会主义现代化建设引领区”的重要措施。

5月26日,上海市政府副秘书长陈鸣波表示,中央已制定印发13号文,即《关于支持浦东新区高水平改革开放打造社会主义现代化建设引领区的意见》,支持上海在新的起点上,进一步完善“四大体系”:金融市场体系、产品体系、机构体系、基础设施体系,增强全球资源配置能力,加快推进国际金融中心建设。

刘功润向记者表示,按照规划,浦东新区将分两个阶段加快打造社会主义现代化建设引领区。一是到2025年,即“十四五”时期打造社会主义现代化建设引领区取得重大进展;二是到2035年,基本建成具有世界影响力的社会主义现代化国际大都市核心区,成为我国社会主义现代化建设引领区。

这意味着,浦东新区的建设重点仍是继续扩大对外开放力度,而相关的政策若上升到法规层面将更有保障。

陈耀便向记者指出:“事实上,上海自贸区的探索已经走在了前沿,比如负面清单管理、享受国民待遇等改革,但是目前在法规建设上还需要进一步跟进。浦东新区可以通过立法的形式,围绕贸易投资等的便利化,突破一些不合时宜的法规约束。

陈耀进一步表示,为了加大对外开放的力度,浦东新区可以在税法上进行改革试点,在与国际接轨方面可以走得更快一些。“地方税法如增值税、企业所得税等,是由全国人大来制定、地方执行的。但是,如果全国人大授权浦东新区可以在地方税制上进行一些调整,那么其便可以根据改革开放的需要完善本区域内新的税收制度,从而与国际上的相关制度接轨。”

与此同时,肖金成还指出,当前上海浦东新区正处在一个过渡阶段,在转型升级和高质量发展上,赋予法规制定权是非常必要的。

据了解,浦东新区在20世纪90年代刚建立时,范围只有500多平方公里,后来和南汇区合并,范围扩大到了1000多平方公里。

“浦东新区建立之初以开发为主,而现在大规模的开发已经完成,企业和人口大幅度增加。”在肖金成看来,过去的企业多是工程建设型的企业,现在的企业多是制造业和高新技术企业,企业与居民的权利义务关系,需要制定适合新区实际的法律法规,企业的税收和居民的税收制度也要相应建立。此外,由于就业岗位多,集聚了大量的居民,这些常住居民的权利和义务,需要法规来进行规范。

未来,浦东新区法规会着重在哪些方面进一步明确和规范?肖金成指出,不同产业的发展都需要制定不同的政策,包括金融政策、土地政策和财政政策等,但这些政策并不是法律,如果有必要可以上升到法律法规的层面。

如土地制度,还存在国有土地和集体土地的“城乡二元土地制度”,户籍统一了,但土地性质还未统一。建设用地的性质不一样,存在较多的集体建设用地。浦东新区在土地制度上的创新,需要通过法律来规范。肖金成认为,浦东新区在土地制度创新方面可以先行一步,城乡土地应实现一体化,不再分集体建设用地和国有建设用地,有利于空间结构调整,不再有“城中村”。

此外,肖金成和陈耀也都向记者表示,对于当前备受关注的“房地产税”问题,浦东新区也可以先开展改革试点。比如,对于征收的范围、税率的制定标准等,可以在浦东新区进行探索。

肖金成指出,房地产税是国家深化改革时需要进一步探索的领域,在浦东新区可以做一些试点。“目前对房地产的调控都是临时性的,如房贷利率的调整、限购政策等都是短期的调控手段。而房地产税既是基层政府财政收入的主要来源,也是对房地产需求进行调控的一种手段。”

来源 | 中国经营网

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699 Hongfeng Road, Pudong, Shanghai 201206, P.R.C. ( Virtual Reality Campus Tour | Map | Campus Layout )
Tel:+86-21-2890 5890
Admissions Hotline:+86-21-2890 5588
Email:info@ceibs.edu
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Building 20, Zhongguancun Software Park, 8 Dongbeiwang West Road, Haidian District, Beijing 100193, P.R.C ( Map )
Tel:+86-10-8296 6600
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142 Zimao St., Qianhai Cooperation Zone, Shenzhen 518066, P. R. C.
Tel:+86-755-3699 5111
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Zurich Campus, CEIBS Switzerland AG, Hirsackerstrasse 46, P.O. Box, CH-8810 Horgen
Tel:+41 44 728 99 86
Email:info.zh@ceibs.edu
Website:https://europe.ceibs.edu/
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5 Monrovia Road, East Legon, Accra, Ghana
Tel:+233 544315238; +233 302745944
Nigeria Office,
No.2 Louis Solomon street, Victoria Island, Lagos, Nigeria
Tel: +234 7068105054
Email:africaprogram@ceibs.edu
Website:https://www.ceibs.edu/africa
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