陕西县级科技管理体制问题研究
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摘要
县级科技管理部门是我国行政体制中最基层的科技管理部门,由于长期受计划经济影响,县级科技管理体制特别是西部地区的县级科技管理体制已远不能适应我国经济发展和社会改革的需要。因此,对县级科技管理现行体制中存在问题进行研究,对加快县级科技管理体制改革步伐,推进社会主义新农村建设,全面提升我国自主创新能力均具有十分重要的理论和实践指导意义。
本文在对陕西省具有代表性的6个地级市及其所辖的16个县进行调研的基础上,采用“分析现状问题——配置科技资源——保障投入——寻找对策”的技术路线,以陕西省为例,对县级科技管理体制问题进行了深入的分析和探讨。主要分为六个大部分,第一部分主要阐述研究县级科技管理问题的意义以及方法;第二部分根据调研结果对陕西目前科技管理体制的现状从不同角度进行了描述;第三部分对目前陕西县级科技管理体制进行了客观的评价,并对存在问题以及存在此问题的根源进行了阐述和分析;第四部分在建立完善的科技管理体制基础上重点分析和论述了如何更好的配置县级科技资源,使之更好的发挥起作用;第五部分在合理配置科技资源的基础上论述了建立健全科技投入保障机制的问题;第六部分,从五个方面提出了在目前条件下完善科技管理体制的对策。
本文提出了以下主要思想:1.县级科技体制的完善对于我国自主创新能力的提升和社会主义新农村建设的推进都起着至关重要的作用;2.在我国计划经济体制下,现有的科技管理体制对县域内科学技术的发展和科学技术对社会、经济、农业等的促进奠定了基础,发挥了不可磨灭的贡献。3.随着我国经济体制的变革,市场经济不断完善,现行的高度计划的科技管理体制出现了与经济社会发展不相适应的诸多问题,主要表现在以下五个方面:第一,科技运行结构不合理;第二,制度建设尚不够健全;第三,科技投资渠道单一;第四,领导体制上存在多重性;第五,科技管理人员素质相对较低。这些问题已经成为制约县级科技和经济社会发展的瓶颈。4.科技管理体制中存在问题的根源主要是以下几个方面:第一,在计划经济向市场经济的转变过程中,新旧体制的转换时期,旧的行政权力仍然对经济保持干预,而新的经济体制又缺乏有效的制约和管理;第二,科技管理部门从行政的管理控制向市场引导方面的转变不够;第三,科技投入是一项见效较慢的长期投资,科技管理部门作为不显著成为政府主管领导往往不愿意将科技工作作为工作重点的主要原因。5.改革现行县级科技管理体制势在必行,不改革必然会导致科技管理部门处于可有可无的地位,陷入恶性循环;不改革,必然导致科技工作的滞后,直接制约着县级经济社会的全面发展,直接影响着我们这个农业大国的国民经济健康快速的发展。6.必须通过调整科技资源配置模式,解决我国县级科技资源配置中存在着的科技投入不足、机构权利作用发挥不足、科技人员不足等三大问题,进而推动县级科技发展。7.县级科技经费投入已经成为制约县级科技发展的瓶颈问题,要通过建立科技经费投入保障的长效机制来解决此问题。
County science and technology administration department is the basic science and technology administration institution in the administrative system of China. Having been impacted by the planning economy, the county science and technology administration system, especially in the western regions of China, is far beyond to meet the requirement of economic development and social reform in China. Therefore, it is both theoretically and practically significant to study problems existing in current county science and technology administration system, for accelerating the reform of such system, driving the construction of new socialist countryside as well as thoroughly enhancing the capability of independent innovation in China.
Based on the investigation on 16 counties under 6 representative local municipality in Shaanxi Province, this dissertation adopts such study route as“current situation analysis -- scientific and technological resources allocation– input guarantee - countermeasures seeking," and takes Shaanxi Province as a case to deeply research and explore the problems of county science and technology administration system. This dissertation includes 6 sections, firstly, study meaning and methods on the problems of county science and technology administration system are presented; secondly, the current situation of Shaanxi science and technology administration system is analyzed from different viewpoints in accordance with investigation results; thirdly, a subjective evaluation is made on the current county science and technology administration system, and the existing problems and its root are illustrated and analyzed; fourthly, based on the construction of a sound science and technology administration system, how to allocate county science and technology resources well is analyzed and discussed emphatically so as to make use of their functions completely; fifthly, on the basis of reasonable allocation science and technology resources, establishing and perfecting a guarantee mechanism for scientific and technological input is discussed, so as to make use of such resources utmost; sixthly, the countermeasures for perfecting science and technology administration system is suggested from five aspects at current condition.
This dissertation proposes some important ideas as follows: 1), the improvement of county science and technology administration system is critical to the improvement of independent innovation capability and the promotion of the construction of new socialist countryside in China; 2), under planned economic system, the existing science and technology administration system forms a base for the development of county science and technology and its driving function on the society, economy, agriculture, as well as plays a irreplaceable role; 3), with the reform of social and economic system of China, market economy is developed continuously, the highly planned science and technology system is out of parallel to the social and economic development, such problems as following five aspects: A) unreasonable operation structure of science and technology; B) unhealthy system construction; C) single scientific and technological input channel; D) multi-layer of leadership; E) lower quality of science and technology administration staff generally; These problems have been the bottleneck that restricts the development of the county science, technology, economy and society. 4) the root existing in the science and technology administration system is mainly as following aspects: A), in the course of the planned economy transforming to market economy, in the time for former system shifting to a new one, the old administrative powers still maintain economic intervention, but there is lack of effective restriction and control over them in the new economic system; B), there is a insufficient transformation from administrative control to market induction; C), scientific and technological input is a long-term investment with slow achievement of effect, it is the major reason that un-outstanding action of science and technology administration departments makes government leadership reluctant attach to much attention to the science and technology administration work. 5), to reform the existing county science and technology administration system is inevitable, otherwise it will definitely lead to the crisis of the survival of science and technology departments, a vicious circle may be at hand, if not to reform it, the science and technology must be delayed, which may directly restrict the comprehensive development of county economy and society, and impact the rapid development of national economy of China as a large agricultural country. 6) such three major problems as the shortage of county scientific and technological input, the incapable function of institutional power, insufficiency of science and technology staff that exist in science and technology resource allocation is necessary to be resolved through regulating the science and technology resources allocation formula, so as to impel the development of County science and technology. 7) the insufficiency of the county scientific and technological input that has been the bottleneck restricting the development of the county science and technology should be settled through establishing a long-term effective scientific and technological input warranty mechanism.
本文在对陕西省具有代表性的6个地级市及其所辖的16个县进行调研的基础上,采用“分析现状问题——配置科技资源——保障投入——寻找对策”的技术路线,以陕西省为例,对县级科技管理体制问题进行了深入的分析和探讨。主要分为六个大部分,第一部分主要阐述研究县级科技管理问题的意义以及方法;第二部分根据调研结果对陕西目前科技管理体制的现状从不同角度进行了描述;第三部分对目前陕西县级科技管理体制进行了客观的评价,并对存在问题以及存在此问题的根源进行了阐述和分析;第四部分在建立完善的科技管理体制基础上重点分析和论述了如何更好的配置县级科技资源,使之更好的发挥起作用;第五部分在合理配置科技资源的基础上论述了建立健全科技投入保障机制的问题;第六部分,从五个方面提出了在目前条件下完善科技管理体制的对策。
本文提出了以下主要思想:1.县级科技体制的完善对于我国自主创新能力的提升和社会主义新农村建设的推进都起着至关重要的作用;2.在我国计划经济体制下,现有的科技管理体制对县域内科学技术的发展和科学技术对社会、经济、农业等的促进奠定了基础,发挥了不可磨灭的贡献。3.随着我国经济体制的变革,市场经济不断完善,现行的高度计划的科技管理体制出现了与经济社会发展不相适应的诸多问题,主要表现在以下五个方面:第一,科技运行结构不合理;第二,制度建设尚不够健全;第三,科技投资渠道单一;第四,领导体制上存在多重性;第五,科技管理人员素质相对较低。这些问题已经成为制约县级科技和经济社会发展的瓶颈。4.科技管理体制中存在问题的根源主要是以下几个方面:第一,在计划经济向市场经济的转变过程中,新旧体制的转换时期,旧的行政权力仍然对经济保持干预,而新的经济体制又缺乏有效的制约和管理;第二,科技管理部门从行政的管理控制向市场引导方面的转变不够;第三,科技投入是一项见效较慢的长期投资,科技管理部门作为不显著成为政府主管领导往往不愿意将科技工作作为工作重点的主要原因。5.改革现行县级科技管理体制势在必行,不改革必然会导致科技管理部门处于可有可无的地位,陷入恶性循环;不改革,必然导致科技工作的滞后,直接制约着县级经济社会的全面发展,直接影响着我们这个农业大国的国民经济健康快速的发展。6.必须通过调整科技资源配置模式,解决我国县级科技资源配置中存在着的科技投入不足、机构权利作用发挥不足、科技人员不足等三大问题,进而推动县级科技发展。7.县级科技经费投入已经成为制约县级科技发展的瓶颈问题,要通过建立科技经费投入保障的长效机制来解决此问题。
County science and technology administration department is the basic science and technology administration institution in the administrative system of China. Having been impacted by the planning economy, the county science and technology administration system, especially in the western regions of China, is far beyond to meet the requirement of economic development and social reform in China. Therefore, it is both theoretically and practically significant to study problems existing in current county science and technology administration system, for accelerating the reform of such system, driving the construction of new socialist countryside as well as thoroughly enhancing the capability of independent innovation in China.
Based on the investigation on 16 counties under 6 representative local municipality in Shaanxi Province, this dissertation adopts such study route as“current situation analysis -- scientific and technological resources allocation– input guarantee - countermeasures seeking," and takes Shaanxi Province as a case to deeply research and explore the problems of county science and technology administration system. This dissertation includes 6 sections, firstly, study meaning and methods on the problems of county science and technology administration system are presented; secondly, the current situation of Shaanxi science and technology administration system is analyzed from different viewpoints in accordance with investigation results; thirdly, a subjective evaluation is made on the current county science and technology administration system, and the existing problems and its root are illustrated and analyzed; fourthly, based on the construction of a sound science and technology administration system, how to allocate county science and technology resources well is analyzed and discussed emphatically so as to make use of their functions completely; fifthly, on the basis of reasonable allocation science and technology resources, establishing and perfecting a guarantee mechanism for scientific and technological input is discussed, so as to make use of such resources utmost; sixthly, the countermeasures for perfecting science and technology administration system is suggested from five aspects at current condition.
This dissertation proposes some important ideas as follows: 1), the improvement of county science and technology administration system is critical to the improvement of independent innovation capability and the promotion of the construction of new socialist countryside in China; 2), under planned economic system, the existing science and technology administration system forms a base for the development of county science and technology and its driving function on the society, economy, agriculture, as well as plays a irreplaceable role; 3), with the reform of social and economic system of China, market economy is developed continuously, the highly planned science and technology system is out of parallel to the social and economic development, such problems as following five aspects: A) unreasonable operation structure of science and technology; B) unhealthy system construction; C) single scientific and technological input channel; D) multi-layer of leadership; E) lower quality of science and technology administration staff generally; These problems have been the bottleneck that restricts the development of the county science, technology, economy and society. 4) the root existing in the science and technology administration system is mainly as following aspects: A), in the course of the planned economy transforming to market economy, in the time for former system shifting to a new one, the old administrative powers still maintain economic intervention, but there is lack of effective restriction and control over them in the new economic system; B), there is a insufficient transformation from administrative control to market induction; C), scientific and technological input is a long-term investment with slow achievement of effect, it is the major reason that un-outstanding action of science and technology administration departments makes government leadership reluctant attach to much attention to the science and technology administration work. 5), to reform the existing county science and technology administration system is inevitable, otherwise it will definitely lead to the crisis of the survival of science and technology departments, a vicious circle may be at hand, if not to reform it, the science and technology must be delayed, which may directly restrict the comprehensive development of county economy and society, and impact the rapid development of national economy of China as a large agricultural country. 6) such three major problems as the shortage of county scientific and technological input, the incapable function of institutional power, insufficiency of science and technology staff that exist in science and technology resource allocation is necessary to be resolved through regulating the science and technology resources allocation formula, so as to impel the development of County science and technology. 7) the insufficiency of the county scientific and technological input that has been the bottleneck restricting the development of the county science and technology should be settled through establishing a long-term effective scientific and technological input warranty mechanism.
引文
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