市场化改革以来,国有基础产业部门的改革进展相对缓慢,本文以电信产业的市场化改革为例,从纵向分权体系的权力关系与运行的角度提出一种解释。研究发现:权力下放给专业性部委和国有企业后,在市场中形成了垄断经营权,故无助于市场机制的发展;中央尽管具有最终决策权,但其能力发挥受到一些因素的影响,也无法完全自主地推动改革;加上纵向分权体系的封闭,每一轮改革都在重复上一轮改革的逻辑,使得改革进展缓慢。本文认为进一步改革的突破口有两点:一是调整分权的方式,即从纵向分权向功能性分权转变;二是调整分权体系的开放度,即从封闭转向开放。 Since the market-oriented reform, the reform of the state-owned basic industries has been relatively slow. Taking the market-oriented reform of the telecommunications industry as an example, this paper presents an explanation from the perspective of the power relations and operation of the decentralized power system. The study found that decentralization of power to specialized ministries and state-owned enterprises led to the formation of a monopoly right in the market, which did not contribute to the development of the market mechanism. Although the central government has the ultimate decision-making power, its ability to exert its influence is affected by some factors. In addition, with the closure of the system of vertical decentralization, each round of reforms is repeating the logic of the previous round of reforms, making progress in the reform slow. This paper argues that there are two breakthroughs in further reform: First, the way to adjust decentralization, that is, from vertical decentralization to functional decentralization; second, to adjust the openness of the decentralization system, that is, from closed to open.