所有权锚定、经营权分层与双轨协同:民生公共服务领域的制度构想与渐进改革路径 Ownership Anchoring, Operation Right Stratification and Dual-Track Coordination: Institutional Conception and Gradual Reform Path in Public Services for People's Livelihood

作者:郭洋洋Author: Guo YangyangORCID:0009-0006-6669-1790Contact email:[email protected] Type: PreprintSubmission Date: October 28, 2026Version: v1.0 Final Bilingual EditionPreprint DOI: 10.5281/zenodo.23700665Open Access License: CC BY 4.0 摘要 Abstract 针对当前中国民生公共服务领域存在的监管与经营身份叠合、公私合作产权流转风险、居民刚性支出挤压内需多样性等现实困境,本文提出一种以公共资产所有权永久国有为核心锚点的双轨制治理框架。该框架基于公有制实现形式的两权分离理论与底线公平福利理论,将公共服务体系拆解为所有权、经营权、服务供给三个层级:底层由国家永久持有民生基础设施资产,全程不发生产权流转;中间层通过市场化方式出让纯服务经营权,引入职业经理人式的受托运营机制;上层构建“基础兜底轨+市场增值轨”的双轨服务体系,通过基础服务的内生性体验分流机制实现人群自然分层,降低行政审核成本与寻租风险。本文进一步论证了该制度的运行闭环与宏观经济效应,设计了从亏损公益类国企切入的渐进式落地路径,并与现有特许经营模式进行了系统比较。研究表明,该框架既能够从结构上解决“裁判与运动员身份混同”的治理顽疾、压缩权力寻租空间,又能够平滑居民刚性支出、释放消费多样性,从需求侧缓解结构性产能过剩,为中国特色公共服务体系改革提供了兼具公平与效率的备选方案。 Against the practical dilemmas in China’s public service sector—including the conflation of regulatory and operational identities, property rights transfer risks in public-private partnerships, and the squeeze on domestic demand diversity caused by residents’ rigid expenditures—this paper proposes a dual-track governance framework anchored on the permanent state ownership of public assets. Grounded in the theory of separation of ownership and management rights for public ownership and the bottom-line fairness welfare theory, the framework decomposes the public service system into three layers: the bottom layer, where the state permanently holds livelihood infrastructure assets with no property rights transfer throughout the entire life cycle; the middle layer, where pure service operation rights are granted through market-oriented mechanisms with a professional manager-style entrusted operation model; and the upper layer, where a dual-track service system consisting of a basic security track and a market value-added track is established. Through an endogenous experience-based diversion mechanism for basic services, the framework realizes natural stratification of populations, reducing administrative review costs and rent-seeking risks. This paper further demonstrates the operational closed loop and macroeconomic effects of the system, designs a gradual implementation path starting from loss-making public welfare state-owned enterprises (SOEs), and systematically compares it with existing concession operation models. The study shows that the framework can structurally resolve the chronic governance problem of “the dual identity of referee and athlete”, narrow the space for power rent-seeking, smooth residents’ rigid expenditures, unleash consumption diversity, and alleviate structural overcapacity from the demand side. It provides an alternative scheme that balances equity and efficiency for the reform of China’s public service system with Chinese characteristics. 关键词:公共资产所有权;两权分离;双轨制;民生兜底;渐进式改革;公私合作 Keywords: public asset ownership; separation of ownership and management rights; dual-track system; basic livelihood security; gradual reform; public-private partnership