以伊春森工集团有限责任公司为例,构建了国有林区改革情境下的SES框架,采用多案例研究方法对完全政企合一和不完全政企合一的两类林业局企业不同的政企分开改革模式进行机制和困境分析.研究发现:重点国有林区政企分开改革是典型的渐进式制度变迁,政企分开改革进程外部受改革配套政策完备性影响,内部受行动者与治理系统的资源配置权、相对话语权和相互依赖性制约,通过影响改革成本的分摊机制进而影响到行动舞台.在改革后期,重点国有林区还存在政企职能边界不清晰、改革相关配套政策支持不足、林区职工安置问题难以平衡等现实困境.因此,提出进一步深化政企分开改革要塑造成熟的合作共治治理结构、合理确定改革成本分担机制、积极引导林区职工主动适应市场环境等措施.
⑴ Background——The key state-owned forest areas are unique regions formed under the specific historical periods and special development strategies,and the reform of their governance system is crucial to ecological protection,sustainable development and social well-being in the new era.Although the reform of the state-owned forest areas has lasted for many years,there are still some problems such as dysfunctional institutional reform,stagnant industrial development and imperfect livelihood guarantee. ⑵ Methods——Taking Yichun Forest Industry Group in Heilongjiang Province as an example,this paper integrated resources,systems and social capitals into the analysis framework,and used the method of multiple case studies to compare and analyze the two reform modes of complete integration of the government and enterpri-ses with the incomplete integration of the government and enterprises.The reform mechanisms and realistic di-lemmas in the process of separating the government from enterprises were explored by setting SES(Social-ecolog-ical System)key variables in eight typical cases extracted from the four forestry bureaus. ⑶ Results——First,although the two reform modes of separating the government from enterprises had their own characteristics,in general,the reform of separating the government from enterprises led to the resha-ping of the institutional environment and the changes in the authorities and responsibilities of the local govern-ments and forest industry enterprises.However,the deep-rooted"system of units"and the deepening of path dependence limited the smooth implementation of the reform.Second,the reform process of separating the gov-ernment from enterprises was externally influenced by the completeness of the supporting policies for reform,and internally constrained by the resources allocation rights,relative discourse rights and interdependence of the ac-tors and governance systems,which affected the action stages by affecting the allocation mechanism of the reform costs.Third,the separation of the government from enterprises involved multiple stakeholders,including the government,enterprises,employees,etc.,which would inevitably lead to the reconstruction of interest rela-tions.In the post-reform period,it also faced the dilemmas such as unclear boundaries of the government and enterprises functions,insufficient support of the reform-related supporting policies,and difficult balance in the resettlement of the forest employees,which restricted the release of reform dividends. ⑷ Conclusions and Discussions——First,the local governments need to adjust their roles and responsi-bilities from those of administrators in the past to those of market regulators and service providers.At the same time,we should establish the value concept of overall co-governance and shape a mature cooperative governance structure.Second,since the reform of separating the government from enterprises affects the action stages of the local governments and forest industry enterprises,it is necessary to reasonably determine the sharing mechanism of reform costs and coordinate funding channels.For the public services undertaken by the enterprises in the transi-tional period,the government can share the relevant costs by purchasing socialized services.Third,after the sep-aration of the government from enterprises,the forest workers have changed from the original"unit people"to en-terprise employees.In the face of the rapidly changing development situation,the forest employees should contin-ue to carry forward the forest industry spirit of hard work and daring to venture,actively face the market,go to the market and integrate into the market,constantly learn new vocational skills,and create"gold mountains and sil-ver mountains"through diversified channels while managing and protecting the"clear waters and green mountains".