在计划经济体制下，各级城市政府既是社会管理的主体，又是经济管理的主体，形成政府双重职能合一。政府是国有资产的所有者，又是国有企业的经营者。政府以高度集权的行政方式全面干预、控制企业的经营活动。企业不是市场的主体，而政府却成了市场主体，企业是政府的附属物， Under the planned economic system, the city governments at all levels are not only the main body of social management but also the main body of economic management, forming the dual function of government. The government is the owner of state-owned assets and the manager of state-owned enterprises. The government fully intervened in a highly centralized administrative manner to control the business activities of enterprises. The enterprise is not the main body of the market, but the government has become the main body of the market, the enterprise is the appendage of the government,