基于顶层设计视角对大部制改革的审视  

A Review of the Super-Department Reforms from the Perspective of Top-Level Design

作　　者：徐艳晴[1] 周志忍[2,3] 

机构地区：[1]海南大学政治与公共管理学院 [2]北京大学政府管理学院 [3]北京大学国家治理研究院

出　　处：《公共行政评论》2017年第4期5-23,共19页Journal of Public Administration

基　　金：国家自然科学基金项目"整体政府视角下的中国政府跨部门协同机制研究"(71173004);中国机构编制管理研究会重点项目"深化大部门制改革的思路和重点领域研究"(2017YJHZD04)

摘　　要：在大部制改革研究文献中,顶层设计不足被普遍视为改革的一个缺憾,同时被视为改革效果差强人意的重要原因,但鲜有对此的专门研究。基于顶层设计的整合诠释框架,对大部制改革的审视围绕四个维度展开:全方位系统筹划;直面重大问题敢于突破;主体角度的"相对顶层观";时间维度上"一揽子方案"并"事前"出台。考察发现:两轮大部制改革符合顶层设计的两个"外在表征",但在系统筹划和改革力度两个"核心内涵"上存在不足或缺失。未来改革中强化顶层设计有几个着力点:职能转变的科学定位和新突破口的选择;加大机构改革力度并选择新的突破口;加强改革目标层次的系统筹划;加强时间进程的系统筹划和动态监管;推进机构改革的透明度和信息公开。Weak top-level design has been widely regarded as a flaw in the Super-Department reforms as well as the main cause of its failure to meet popular expectations.Based on the literature, we constructed a normative framework for top-level design with four elements, including: holistic planning, facing the fundamentals to achieve breakthroughs, relying on related top institutions, and packaging arrangements in advance. Applying this framework to the two rounds of Super-Department reforms over the past 9 years, we found that although the reforms met the requirements of holistic planning and packaging arrangements in advance, they fell far short of expectations in the other two aspects as well as other important aspects. Future top-level design should focus on the following: restructuring government functions by searching for breakthroughs on the boundary of public power; deepening structural integration within the super departments; transforming strategies and guiding principles into operational objectives and criteria for evaluation; strengthening process planning and management; and,promoting transparency and information disclosure.

关 键 词：顶层设计 大部制 职能转变 机构整合 

分 类 号：D630[政治法律—政治学]