Research On The Governance Structure Of China's Railway Industry From The Perspective Of Government-Enterprise Relationship

The railway industry is an important national infrastructure,which combines the characteristics of public welfare,competition,monopoly and semi-military.It has the technical characteristics of multiple attributes,multiple subjects and multi-directional functions.The passenger and cargo transportation services provided by the railway which is highly dependent by the public,is dominant in the national integrated transportation system.Since the 18th National Congress,the reforms in major areas have continued to deepen.From the central government to the local governments,with greater determination,they are promoting the transformation of government functions and the growth of market players,and strive to achieve reform effectiveness in important areas and key links.As a national strategy to serve the country,to reflect the will of the state,to safeguard the national economy and people's livelihood,and to promote the important infrastructure for industrial transformation,the railway's leading effect and demonstration significance are very prominent.In recent years.the state has paid great attention to the major issues of railway reform and development,and successively issued relevant policies and guidance for deepening reform.In 2019.the reform of the shareholding system of China Railway Corporation has been included in the focus of the annual economic work.In the newly issued "Government Work Report",it is clear that "continuously deepen the railway reform and separate the network operations according to the attributes of the natural monopoly industry."There is a strong signal of reform;the local level has also actively followed up.Since the year of 2013,25 provinces,autonomous regions,and municipalities directly under the Central Government have formulated comprehensive transportation policies,or accelerated the "13th Five-Year" railway development plan.Promoting the development of the local railway industry,the people's expectation for railway reform has been for a long time.This has formed a strong synergy to lead and promote the deep reform of the railway.The theoretical research and practical operation have been more closely integrated,and the railway industry has The reform will enter the window of opportunity and the active period.The two basic problems of the railway industry are reform and development,and one of the main lines running through it is the relationship between the government and enterprises.The significance of the relationship between government and enterprises in the railway industry is extraordinary.It affects the progress of railway reform and determines the quality of railway development.It is both a basic premise and a destination.It is the total source of various problems and contradictions,and it is also the mechanism reform.The value of model improvement and path optimization depends on it.The transformation and adjustment of the relationship between government and enterprises is a main proposition of the railway industry,and it is also the core issue for the reform to respond.The relationship between government and enterprise is taken as a perspective to facilitate the perspective of the reform and development logic of the railway industry from a broader perspective.From a more savvy dimension,we propose to determine the powers and responsibilities of government and enterprises,promote the separation of government and enterprise,and the path of action for scientific allocation of power.Affected by the "planned economic system" and the "integration of government and enterprise" model.China railway have long implemented a nationally unified management and highly regulated operating model.In March 2013.the reform of the "major system" in the railway field was officially launched.The Ministry of Railways was revoked.Instead,the state-owned sole proprietorship company,China Railway Corporation,which was responsible for corporate functions and built in accordance with the modern enterprise system,fulfilled its policy formulation.The Ministry of Transport and the National Railway Administration,which have regulations and safety production supervision functions,have laid a structural structure for the railway industry to "three pillars" and have taken an important step in the deep reform of the railway.The transformation and reconstruction of the relationship between government and enterprises means that the internal and external environment and operational mechanism of the reform and development of the railway industry have undergone major changes,and new requirements have been put forward for the optimization of the governance structure of the railway industry,and a value starting point has been calibrated for subsequent reforms.The research background of this paper.At present,China's railway industry is just the period of policy digestive period and effect manifestation of the separate reform of railway government and enterprise in 2013.Generally speaking,under the impetus of the top-level design of the country,the traditional model of political and enterprise disintegration was disintegrated,and the separation of government and enterprise in organizational form and function transfer was realized.The underlying logic and dynamic mechanism of reform were fundamentally reshaped to local railways.The bureau was reorganized into a modern business-oriented enterprise,the railway quality assets preparation stocks were listed on the market,the introduction of diversified capital in the investment and financing sector,and the introduction of a number of Measures for the convenience of the people,for passenger and cargo transportation services,especially the rapid development of high-speed railways and major industry indicators.The world's leading position is the concentrated expression of the externalization of the previous reforms,indicating that the development of the railway industry has entered a new stage.Although the formal separation of government and enterprise in form.the personnel arrangement,funding sources,financial liquidation,and functional setting within the railway industry,the relationship between the external government and the railway enterprises still retains a heavy trace of administrative subordination,with close government and far market.The characteristics are different from the original intention of reform and the expectation of the outside world.The crux of the problem lies in the fact that the separation of government and enterprises is only low-level,partial,and incomplete,such as the transformation of the governance model of the railway industry and the construction of the governance structure.A series of major core issues,such as governance behavior regulation,have not yet found an effective solution;railway enterprises still do not have independent,complete,self-financing,self-development market subject status,weak self-generation ability,lack of hematopoietic function,single investment and financing The mode and huge debt pressure have caused the powers and responsibilities among the various internal railways,inefficient operation,chaotic management,and exposed the chaos of industiy governance.The traditional operating mode and management system have been unsustainable,and it is urgent to take a holistic view.At present,how to make full use of policy dividends and reform dividends,adjust interest relations,eliminate industry barriers,crack development bottlenecks,integrate governance forces,effectively demonstrate the comparative advantages of railways and market competitiveness,and better serve national strategies and become a major national foundation are all key to the deep reform and good governance of the railway industry.It involves the discussion of the adjustment of the governance mechanism of the railway industry and the transformation of the kinetic energy of the refom.It is also the part with the largest amount of evidence and the largest proportion of the argument.To effectively respond to the above problems,especially focusing on the maj or opportunity for the transformation of government-enterprise relations,and to seek the optimization and upgrading of the governance structure of the railway industry,we must return to the discussion of the three major contradictions in the railway industry which are the one between nationality and marketization,the one between publicity and commerciality and the one between monopoly and competability.the first contradiction is the main contradiction of the railway industry,which is the root cause of the latter two contradictions.It is based on the overall idea of the nationalization of railways and the marketization of some competitive links.In order to promote the all-round and deep separation of government and enterprises in the railway industry,and promote the reorganization of railways,the trigger includes organizational structure,management system,operation mode,ownership rights,The system reform of investment and financing mechanism and financial liquidation model provides a theoretical basis,and the development status of the railway industry and the predicament caused by the unscientific allocation of powers and responsibilities,the separation of government and enterprise,and the imperfect governance structure are paralyzed.The pace of railway development has forced the reform to jump out of the traditional path dependence and seek new reform dynamics and governance mechanisms from the perspective of constructing and improving the governance structure of the railway industry.To this end.this paper introduces the macro-model of Multiple countries railway reform outside the region,as well as micro-cases for optimizing the railway transportation dispatching mechanism,flating organizational structure.and improving the operating mode of state-owned enteprises,as a reference for China's railway industry reform;In order to promote the separation of government and enterprises.according to the functions of the railway industry,the general requirements for specialization,standardization of policy implementation,diversification of property rights,marketization of enterprise operations,institutionalization of governance,and regulation of legalization are established.Deepen the synergy,clarify the railway national ownership policy,rationalize the railway property rights relationship,improve the investment and financing mechanism,establish a modern enterprise system,comprehensively strengthen the optimization of the rule of law construction,and propose a series of optimization paths to shape and improve the governance structure of the railway industry.which aims to provide specific action strategies and improvement models for deepening railway reform.The paper is divided into seven chapters.The introduction part summarizes the research background,theory and practical significance of the paper,summarizes the research status at home and abroad,clarifies the research ideas,methods and basic contents,and summarizes the possible innovations and deficiencies of the paper.Chapter One Theoretical tools,and analytical frameworks.This chapter interprets the main concepts of railway industry,governance structure and governance structure of railway industry.From the perspective of public management,choose governance theory.new public management theory,public goods theory,government regulation theory and principal-agent theory as analytical tools.Combined with the specific problems of the railway industry.the theory applies to the sharing of power between the government and enterprises in the railway industry.the boundary of public-private partnerships,the guarantee mechanism of public attributes,the coupling mechanism of government-enterprise relations,and the mechanism of transaction costs.The combination of the theoretical paradigm and the problem domain.From the two dimensions of internal and external governance structure,the macro analysis framework of the governance structure of the railway industry is proposed.The internal governance structure forms three division mechanisms of the industry domain,the functional domain and the organizational domain.The external governance structure focuses on clarifying the "four-fold relationship" between the state and the railway,the ruling party and the railway,the government and the railway enterprise,and the multi-stakeholders,draws a technical research roadmap based on the analysis logic and research direction.Chapter Two Relationship between Government and Enterprise:A Review of the Governance Structure of the Railway Industry.This chapter gives a comprehensive interpretation of the perspective of the governance structure of the railway industry--the relationship between government and enterprises.Focusing on the concept meaning,transformation form,influencing factors and evolution of government-enterprise relations;focusing on the contrast between government and enterprises,the relationship between government,market and enterprise,and the multi-dimensional factors affecting the relationship between government and enterprises,respectively Three analytical models reveal the logic,operational mechanism and general rules of the relationship between government and enterprises:sort out the intrinsic relationship between the relationship between government and enterprises and the reform and development of China's railway industry.and the combination of "political and enterprise" and "government and enterprise" formed in a specific period The characteristics of the three modes of "separation" and "separation of government and enterprise" are analyzed one by one.At the same time,it reveals a new opportunity for the accelerated development of the railway industry from the perspective of separation of government and enterprise.Chapter Three Changes in the governance structure of China's railway industry since the reform and opening up.This chapter reviews the development of the governance structure of the railway industry from a historical perspective.Prior to the reform and opening up,the management system,organizational structure and operation mode of the railway industry basically copied the Soviet Union and maintained a unified management and highly regulated management model of the railway in line with the" planned economic system".Since the reform and opening up.the policy adjustment of the railway industry has entered an active period.In accordance with the acceleration of the transformation of government functions,the regulations have been gradually relaxed,the basic ideas of industry monopoly have been broken,the main body of market competition has been cultivated.In the determination of the boundaries between government and enterprises,stimulating the vitality of enterprises,optimizing the management system,improving the operating model,flat organization,and clarifying the relationship of property rights,we have carried out fruitful exploration attempts and formed some important achievements,which aims to promote the railway self-sufficient closed system to the forefront of the reform and development of national areas.Chapter Four The Internal Requirement of the Reconstruction of Government-Enterprise Relationship to the Governance Structure of China's Railway Industry.From the five aspects of governance concept,goal construction,governance principle,value dimension and practical significance,this chapter clarifies the clear requirements of the major adjustment of government-enterprise relationship on the governance structure of the railway industry.and is committed to the reconstruction of government-enterprise relations,the railway industry.Under the circumstances that the reform conditions,the external environment and the goal orientation have undergone major changes at the same time,the relevant subjects of the railway industry governance,from the perspective of party and government governance,industry autonomy,rule of law,and pluralistic governance,which portrays the ideal state of governance structure of the railway industry at the value level.Chapter Five A Realistic Survey of the Governance Structure of China's Railway Industry.This chapter focuses on the development of the governance structure of China's railway industry.SWOT analysis is used to scan the advantages and disadvantages of the railway industry and the challenges of the opportunity,to find out the functional positioning and comparative advantages of the railway;to transform from the macro-governance mode of the railway industry,to the lack of the main body of the governance structure and the misconduct of the micro-governance behavior.This paper discusses the problem representation of the existing governance structure of the railway industry,and reveals the causes of the problem from four aspects:institutional defects,functional constraints,implementation barriers,and realistic bottlenecks.This will explain the urgency and significance of accelerating the deepening of railway reform,and form another realistic driving force for the reform and development of railways.Chapter Six Introduction to the Experience of Improvement and Optimization of Railway Industry Governance Structure.This chapter focuses on the experience of railway reform in extraterritorial countries,and selecting inspiring empirical cases to provide a new perspective for the railway to deepen the development of ideas.Focus on the separation mode of the network between the United Kingdom and Sweden,the regional company model of Japan,the parallel line model of the United States,the privatization model of Germany,and the step-by-step reform model of Russia,to draw on useful experience.Focusing on railway infrastructure dispatching and commanding.flat organizational structure,strengthening the reform and management of state-owned assets and other major reforms,the introduction of the railway organization structure under the guidance of public dispatch,the innovation of the organization model of the "ShuoHuang Railway",and the operation mode of Singapore Temasek Three empirical cases provide reference for macroscopic models and micro-practices to promote the optimization and improvem ent of Chin a's railway industry struucture.Chapter Seven The path of perfecting the governance structure of China's railway industry.This chapter is the foothold and destination of the full-text argumentation.Based on the historical evolution,realistic review,problem reflection,cause analysis and experience of the railway industry governance structure,it follows the national state-owned and local competition of the railway industry,and the government reduces regulations.The improvement ideas of"enhanced functions of enterprises" focus on promoting the basic premise of separating government and enterprises,adhering to China's national conditions,taking root in the actual development of railways.highlighting the core position of the party's leadership,and demonstrating the advantages of the socialist system with Chinese characteristics,etc.The industry functions determine the specialization,the standardization of policy implementation,the marketization of enterprise operations,the institutionalization of governance behavior,the diversification of property rights,and the legalization of regulation to propose specific improvement strategies and optimization paths,and scientifically divide the powers and responsibilities of government and enterprises,and clarify the railway.State ownership,optimize railway property rights arrangements,build a modern enterprise system,improve institutional supply,consolidate the practice of legal protection,funther standardize and compromise the relationship between the state and railways,government and railway enterprises,and multiple governance entities,and strive to build power Responsibility Synergy,rich in content and reasonable system,scientific and standardized,modern governance structure of the rail industry to protect the rule of law.Conclusion and outlook.The railway industry is an important component of the national infrastructure.The experiences,models and cases formed in the railway reform and development can be transferred to relevant industries and key areas,providing experience for the reform of other industries and exerting railway reform.Leading the demonstration role,diversifying the railway to improve the positive effects of governance,and promoting the modernization of the national infrastructure governance svstem and governance capacity.