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    國企混合所有制改革應分類推進
            2014-11-27 09:46:37    瀏覽次數:1062     
     


    光明日報:國企混合所有制改革應分類推進

    時間:2014-11-17  原文作者:黃群慧

     

      積極發展混合所有制經濟是推進經濟體制改革、完善基本經濟制度的必然要求。作為我國經濟發展龍頭的國企,理應以排頭兵的姿態破除阻礙,率先垂范。

      經過30多年的改革,我國混合所有制經濟發展取得了很大成就,但國企母公司及二級以上公司層面的混合所有制改革,總體上成效還不顯著,絕大部分還是國有獨資。之所以如此,除了民營企業自身發展實力不夠、法律體系和市場環境不完善等原因外,對國企的使命存在“認識誤區”和國企領導人存在“身份障礙”是兩個主要原因。

      一方面,國企大多被認為承擔著重要的國家政策使命,不適合民資介入的股權多元化。使命是企業的價值取向和事業定位,國企存在的一個重要理由是要承擔“國家使命”。但近些年的實踐表明,對國企而言,其不僅要承擔提供公共服務之類的“公共政策使命”,同時被要求實現國有資產保值增值的“盈利性使命”。為此,企業就有動機尋求一切機會盈利,包括利用行政資源獲取壟斷地位或者進入利潤率高而非事關國計民生的行業等。這就使得國企陷入賺錢和不賺錢兩難的尷尬境地——不賺錢無法完成國有資產保值增值、壯大國有經濟的目標,賺了錢又被指責損害市場公平和效率。問題的關鍵是要具體界定每家國企的使命和功能,區分其“盈利性使命”和“公共性使命”。

      另一方面,國企領導人的行政級別成為阻礙國企推進混合所有制改革的“身份障礙”。按照現行的國企領導人管理制度,無論是董事會成員、黨組織班子、監事會主席,還是經理層,都基本上按照行政級別進行管理,并保留國企領導人員與國家黨政干部交流任職的通道。同時,為調動國企領導人的積極性,按照市場經濟體制要求,建立了針對國企領導人員的市場化薪酬激勵制度,國企領導人可享受市場化的工資水平。這意味著國企領導人同時承擔“企業家”角色和“黨政官員”角色。這種具有行政級別的管理制度使得國企領導人無法成為職業經理人,從而也難以建立規范的現代企業制度和公司治理結構,進而影響國企向混合所有制方向改革。

      要避免“使命沖突”,破除“認識誤區”,就要準確界定不同國企的功能,對國企實施分類改革治理。具體來說,應將國企劃分為三類:“公共政策性企業”“特定功能性企業”和“一般商業性企業”。

      “公共政策性企業”是帶有公共性或公益性的特殊國企,股權結構是國有獨資,具體監管方法是“一企一制”“一企一法”,確保企業活動始終以實現社會公共利益為目標,這類企業數量少,但從長遠看是國有資本投資和管理的重點;“一般商業性企業”即競爭性國企,它以營利性為目標,其股權結構是多元化的,具體監管完全按照公司法規定,現有大部分國企應屬這類;“特定功能性企業”具有混合特征,其承擔一種特定的國家功能,而該功能的實現又要求以企業自身發展和經營活動營利為基礎,其股權結構是國有控股的股權多元化,需要有具體行業方面的法律來監管。

      對于定位為“一般商業性企業”的國企,要大力引入民營資本,發展成混合所有制企業,部分國有資本可以退出轉而投向國家的其他公益性活動;對于定位為“特定功能性企業”和“公共政策性企業”的國企,要積極主動退出那些競爭格局趨于成熟、戰略重要性趨于下降的產業領域,在公共服務和國家戰略方面作出更大貢獻。從順序上看,通過推進國企戰略性調整,首先實現“一般商業性企業”的混合所有制改革,在未來進一步實現“特定功能性企業”的混合所有制改革。

      在分類推進國企戰略性調整的同時,還應完善國企領導人管理體制,由“集中統一管理”逐步轉向“分層分類管理”。具體而言,可將國企領導人員劃分為兩類角色。

      一類是“黨政官員”角色。國企集團公司的董事長及董事會主要成員、黨組織領導班子成員,整體上市公司的黨組織領導班子成員、派出董事和內設監事會主席等,應界定為這類角色。這些人員由上級黨組織和國有資產監管部門管理。在選用方面,采用上級組織部門選拔任命的方式,享有相應行政級別,選用、晉升和交流都可以通過行政方式和渠道實現;在激勵約束方面,應該和黨政官員基本類似,但考核以企業整體經營發展和功能實現程度為標準,激勵以行政級別晉升為主,報酬可以略高于同級別的黨政官員,但不能完全采用市場化的激勵機制,不能享受過高年薪和股權激勵。

    另一類是“企業家”角色。國企中大量的經理人員,包括母公司層面的經理團隊以及各子公司層面的董事會成員和經理團隊等都屬于這類角色。這類人員是職業經理人,由董事會進行管理,應按照市場化辦法選用和激勵約束。在選用上,這類人員需要在職業經理市場上通過競爭性的辦法由董事會進行選聘;在激勵約束方面,考核以市場化的經營業績為標準,董事會按照市場標準給予其薪酬待遇,采用市場化的薪酬結構和水平,可以實施相應的股權激勵制度,但原則上不能再享有相應級別的行政待遇,也不能交流到黨政機關任職。

     
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