《市政府2018年深化重点领域改革工作意见》解读

发布时间:2018-05-16 字体:【 】 浏览次数: 【 关闭 】 

《市政府2018年深化重点领域改革工作意见》(以下简称《意见》),经市政府八届第21次常务会议审议通过,以淮政发【2018】38号文件正式印发。

文件出台背景——

  深化基础性关键性改革   推动全市高质量发展

2018年是实施十三五规划的关键性一年,改革开放40周年为认真贯彻党的十九大和十九届三中全会精神、省委关于进一步落实高质量发展走在全国前列的要求和市党代会、市人代会等工作部署,市发改委牵头起草了《市政府2018年深化重点领域改革工作意见》。

《意见》以习近平新时代中国特色社会主义思想为指导,牢固树立新发展理念,始终突出问题导向,紧扣影响全市发展不平衡、不充分的的体制机制障碍,系统提出持续深化以放管服为重点的行政管理体制改革、加快形成新型城镇化改革试点示范成果、创新城乡融合发展体制机制、进一步深化财政金融改革、深入推进国企国资改革、推动要素市场化和强化产权保护、加快开放型经济体制机制创新、着力提升科技创新能力、深化生态文明体制改革、协调推进文化社会领域改革等关键性重大举措,以深化基础性关键性领域改革作为重点,充分发挥经济体制改革的牵引作用和市场配置资源的决定性作用,促进我市经济社会实现更高质量、更有效率、更加公平、更可持续的发展,满足人民日益增长的美好生活需要。

重点改革内容——

确定十项工作重点   细化87条具体任务

《意见》的主体内容,充分体现了中央和省对今年改革工作的新要求,函盖了政府发力的重点领域,形成了2018年政府各部门的具体任务清单。

(一)持续深化以“放管服”为重点的行政管理体制改革。《意见》要求,深化行政审批制度改革,合理配置市、区两级权责,规范行政权力清单管理。推进不见面审批,推动“35745”审批新流程常态化、普遍化。加快政务服务一张网建设,建成全市统一标准的行政审批综合受理平台。筹建市大数据管理中心,建立全市自然人、法人基础数据库;推进县区组建行政审批局,实现全市一枚印章管审批;推进市场综合监管体制改革,推进县区综合行政执法改革试点,推进市场监管信息平台建设,建立信用联合惩戒机制。拓宽多证合一”“一照一码范围,推进证照分离”“照后减证;深入开展涉企清费降本行动,加强涉审中介服务事项清单管理,取消无法律法规依据的中介服务收费项目。建立职业资格事项动态调整机制,逐步实现市县两级部门及所属事业单位涉企培训考试不再收费;推进政府机构改革和职能转移,研究制定新一轮市级政府机构改革方案,推动淮安经济技术开发区实施大部制改革,全面完成行业协会商会与行政机关脱钩。                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                          

(二)加快形成新型城镇化改革试点示范成果。《意见》要求,加快多规合一成果运用,推进多规合一成果在深化行政审批制度改革中的应用,压缩建设项目审批时限,加快五大试点功能片区土地利用规划;建立农业转移人口市民化激励机制,建立健全支持农业转移人口市民化的财政、土地政策体系,推进金湖县农民工返乡创业国家级试点;深化产城融合改革试点,推广淮阴区一区五园产城融合互动发展经验;推进国家新型城镇化综合试点,形成可复制可推广的经验;深化土地供给侧改革,推进工业用地供应方式改革,探索农村宅基地自愿有偿退出机制,探索实施标准地改革,推进同一乡镇范围村庄建设用地布局调整、洪泽区建设用地双减量和工矿废弃地复垦利用等试点;推动重点乡镇做强做优做特,高标准推进涟水县高沟镇新一轮经济发达镇行政管理体制改革省级试点,探索培育供给侧小镇经济发展模式;深化住房供给制度改革,建立多主体供应、多渠道保障、租购并举的住房制度。

(三)创新城乡融合发展体制机制。《意见》要求,进一步优化供给结构和质量,推进小农户和现代农业发展有机衔接;拓展农村土地承包经营权确权登记颁证成果应用范围,探索土地承包经营权抵押贷款、互换并地、入股试点等成果应用形式;优化农村产权流转交易市场功能,逐步将产权交易市场建成集信息发布、产权交易、法律咨询、项目推介、抵押融资为一体的为农服务综合平台;推进农村集体产权制度改革,深化供销合作社综合改革,推进县级供销社政事分开、社企分开;组织开展推进农业水价综合改革、洪泽区创新农业保险监管模式、洪泽区国家级农村改革试验区政府购买农业公益性服务机制创新试点等农村改革试点。 

(四)进一步深化财政金融改革。《意见》要求,深化财政体制改革,编制财政中期规划,完善预决算公开统一平台,建立预决算公开常态化机制;健全政府举债融资机制,完善和落实政府性债务管理各项制度;推进税收管理体制改革,加大违法排放税款征缴力度,构建税收协同共治机制;

创新实体经济金融服务,建立市级银行机构制造业贷款评价机制,健全融资担保风险共担机制;创新金融产品,推进企业直接融资,推进金融监管体制改革,组建地方金融监管局。

(五)深入推进国企国资改革。《意见》要求,加快国企市场化主体建设,推动政府融资平台实体化转型;发展混合所有制经济,推进市属企业的二级及以下企业混合所有制改革;完善现代企业制度,建立市属企业外派监事会(监事)体系;完善国有资产管理机制,建立国有资产出资人监管权力清单和责任清单。

(六)推动要素市场化和强化产权保护。《意见》要求,进一步整合市级专项资金,完善并公布目录清单;创新财政资金使用方式,探索资金改基金模式,设立市重点产业发展基金;在全市范围探索亩产论英雄机制,着力提升土地产出率;实施天然气价格改革,推进自然资源资产确权登记改革,开展自然资源有偿使用制度试点;出台《淮安市完善产权保护制度依法保护产权的实施意见》,建立健全涵盖各种所有制经济的产权保护长效体制机制。

(七)加快开放型经济体制机制创新。《意见》要求,创新外资项目监管方式,推广一名县区领导、一个开发平台、一支招商队伍、一套引资政策、一个产业基金五个一外资利用机制,提升外资利用质态;创新委托招商、网络招商、基金招商等方式,推动省级以上开发区组建投资、建设、金融、人才服务四类集团公司;加快发展外贸新业态,推进跨境电子商务、综合服务平台建设,推动跨境电商监管中心投入运营;深化开发园区管理体制机制改革,推动园区整合提升。

(八)着力提升科技创新能力。《意见》要求,建立健全产学研协同创新机制,推进优势特色产业技术协同创新联盟全覆盖;培育30户省市“两化融合”示范试点企业;推进财政科技扶持资金使用和科技计划项目管理改革,完善后补助为主的社会研发引导机制;建设市级技术交易市场;完善技术转移机制,加速科技成果产业化;扩大市级科技成果转化风险补偿资金和天使投资引导基金规模,形成围绕政府科技投入、吸引金融信贷和鼓励创投跟进投入的多元化、多层次、多渠道的投融资体系;探索开展专利保险试点,开展知识产权质押融资工作。

(九)深化生态文明体制改革。《意见》要求,落实省“1+3”功能区战略,编制《淮安市湿地保护规划》,强化生态红线监管,建设生态红线管控平台;整治农业面源污染,建立资源环境监测预警数据库和信息技术平台,建立健全绿色低碳循环发展的经济体系;全面实施生态河湖行动计划,严格落实河长制,完善湖长制;推动淮安经济技术开发区探索建立园区生态运营中心,开展能源环境数据统计,打造循环低碳经济、产业共生、生态创新促进平台;制定《生态补偿机制实施办法》,探索多元化补偿机制,建立完善生态保护成效与资金分配挂钩的激励约束机制,调动全社会参与生态环境保护积极性。

(十)协调推进文化社会领域改革。《意见》要求,推进文化旅游体制改革,厘清院团公益职责和市场功能,健全现代文化产业体系和市场体系,筹备成立市文投集团。推进文化事业单位法人治理结构改革、基本公共文化服务标准化均等化。完善文化金融服务体系,组建文化金融服务中心,支持各种形式小微文化企业发展。深化旅游业发展体制机制,建立旅游综合诉调监管新模式;深化教育体制改革,推进义务教育教师县管校聘改革,实施15个省级前瞻性教学改革实验项目、省级课程基地项目、中小学品格提升工程等教改项目。推动体育产业与健康、养老、教育、文化、传媒等产业融合发展,试点建设2-3个体育服务综合体;深化医药卫生体制改革,建立现代医院管理制度,完善公立医院人事薪酬制度。推进医联体(医疗集团)实质化运作和规范化运行,提高基层卫生服务能力;改革公立医院药品采购制度机制,推进市药品(耗材)采购联盟实质规范运作,公立医院全面实行两票制;深化基本医疗保险支付方式改革,全面推行总额控制下的多元复合医保支付方式。推进全市家庭医生签约服务提质增效,在就医、转诊、用药、医保等方面对签约居民实行差异化政策。推进公办养老机构公建民营”“公办民营改革,整合改造闲置社会资源发展养老服务设施。

保障举措——

强化组织领导,保障改革落地

《意见》将87条具体改革任务分解、落实到各相关责任部门,明确牵头单位和协办单位。同时就抓好深化重点领域改革任务落实提出明确要求。

(一)围绕压实改革责任,强化组织领导。加强重点领域改革工作的组织、指导、协调、推进,全力推动责任落实。各牵头部门和参加部门要自觉履行改革主体责任,强化责任担当,加强协调,形成合力。针对协调难度大、涉及面广的改革,要紧抓不放,不弃微末,不舍寸功,铆紧各方责任,层层传导压力,确保不择不扣落实到位。

(二)围绕改革落地生根,强化督查指导。强化改革工作事中事后的跟踪督查,全程推动任务落地。相关县区政府和部门要及时制定具体改革实施方案,明确时间表、施工图,打通政策落实的最后一公里,确保各项改革举措落实到位并取得实效;加强督查督办,认真开展季度督查与年终考核,强化督查问责,严厉整肃庸政懒政怠政行为。完善重点领域改革工作评价机制,组织开展第三方评估。

(三)健全激励和容错机制,鼓励实干担当。坚持依纪依规、实事求是、严格甄别、客观公正原则,把改革创新中因缺乏经验、先行先试导致的工作失误与明知故犯区别开来,把推进改革过程中受客观因素影响造成的工作过失与失职渎职区别开来,把敢闯敢试的干部与擅权专断的干部区别开来,充分保护敢作敢为、锐意进取的干部,最大限度调动广大干部特别是基层干部的积极性、主动性、创造性,不断开创全面深化改革的新局面。