顶层逻辑与属地逻辑的博弈--行政审批制度改革“双轨制”的困境与契机  

The Conflict between Top-down Logic and Territorial Logic --The Dilemma and Opportunity in Dual-track System of China's Administrative Approval System Reform

作　　者：林雪霏[1] Lin Xuefei

机构地区：[1]中国人民大学国家发展与战略研究院

出　　处：《社会主义研究》2016年第6期78-88,共11页Socialism Studies

摘　　要：在宏观的结构视域下有着两套截然不同的改革逻辑并行于行政审批的改革场域内。一套是由中央政府主导的"顶层逻辑"改革,它以理念为导向、依托条线职能部门,自上而下地推动审批内容的清理。另一套为"属地逻辑"改革,是地方政府在发展导向下自发推动的,以行政服务中心为载体在本行政层级内展开的审批机制重构。这两套逻辑以不同的管理方式与改革路径嵌入庞大的行政体制内部,都试图以最小成本推动改革。聚焦于地方审改场域会发现,这两种逻辑至少在清理的审批内容、部门权力格局以及改革目标三个层面存在激烈的博弈。随着改革的推进,审改的双轨逻辑出现了从博弈走向交融的趋势,针对具体领域的顶层配套改革以及向地方政府赋权的政策试验,就是交融契机的具体路径。审改成功与否从根本上取决于这两套改革逻辑能否互补互构,为改革提供持续的动力、理念与信息。From the macro-structural perspective,there are two distinct logics in China＇s administrative approval system reform. One is the top-down logic of the central government, which strives to streamline the approval procedures from the top down and is guided by central-level policies and implemented by functional departments; the other is the territorial logic followed by local governments, which aims at restructuring the approval mechanism at the local administrative level and is carried out by the administrative service centers. The two reform logics are embedded in the administrative system through different ways, but both seek to push forward reform with the lowest cost. There are, however, at least three areas in which the two logics compete with each other： how to streamline the approval procedures, power structure among departments and the objectives of reform. But as reform advances, the relationship between the two logics has started to change from competition to integration, as manifested in the top- level design of specific fields and the policy experiments that empower local governments. The success of reform will depend on whether the two reform logics can eventually complement and complete each other to provide sustained impetus for further reform.

关 键 词：行政审批制度改革 渐进改革 地方自主性 双轨制 

分 类 号：D630.1[政治法律—政治学]