选择性培育:赋予乡镇政府更多自主权的实践逻辑及其优化  

Selective Cultivation:The Practical Logic of Empowering Township-Level Government and Its Optimization

作　　者：高翔[1] GAO Xiang(School of Public Affairs&Center of Social Welfare and Governance,Zhejiang University Zhejiang University,Hangzhou Zhejiang,310058)

机构地区：[1]浙江大学公共管理学院/民生保障与公共治理研究中心,浙江杭州310058

出　　处：《探索》2019年第1期36-43,共8页Probe

基　　金：国家社会科学基金项目"新型城镇化进程中的地方政府职能转变与体制机制创新研究"(14CZZ029);项目负责人:高翔;浙江省哲学社会科学规划立项课题"新型城镇化进程中的县域政府治理转型研究"(13NDJC178YB);项目负责人:冯涛

摘　　要：现有行政体制从经济社会管理权、财政权和机构编制管理权等三个层面制约了乡镇政府的自主权,导致乡镇政府无法顺应城市化进程与提高治理能力的需求。这是赋予地方政府更多自主权改革下需要解决的重要问题。通过浙江省等地中心镇培育与小城市试点镇的调查研究来看,"选择性培育"是中国政府回应城镇化进程中乡镇政府扩权与治理困境的重要策略。其中,高层级政府在经济社会管理权的维度上赋予了乡镇政府更多自主权,但并未实质性地赋予乡镇政府财政自主权,而是以行政干预的方式将土地、资本等要素倾斜性地配置给部分乡镇,也较少涉及乡镇政府治理结构的重塑。"选择性培育"能够在短期内提高部分乡镇政府的部分管理权限与治理能力,但它尚未破除乡镇政府缺乏自主权的体制约束,难以可持续地提升乡镇政府的治理能力。针对城镇化进程中乡镇政府治理能力提升的客观要求,高层级政府应在坚持简政放权的同时,围绕允许地方政府因地制宜设置机构和配置职能的改革精神,着重改革乡镇政府的财政体制和机构编制。通过赋予乡镇政府管理独立财政账户的财政自主权,适度灵活调整机构编制的自主权,达到赋予地方政府更多自主权的改革目标。China’s administrative system constrains township governments’autonomous power by proposing ceilinged socioeconomic approval power,removing its independent fiscal power,and strictly limiting its autonomous in adjusting the organizational structure.Such limitation of autonomous power has led to township governments’incapability of growing its governance capacity with a growing population in urbanization.How to empower the township government?This is one of the most critical challenges of reforming China’s administrative system.Based on in-depth fieldwork in Zhejiang and other provinces,this paper suggests that selective cultivation is the key strategy of the Chinese government to deal with the dilemma of rapid urbanization and limited governance capacity at the township level.Selective cultivation means that the higher level government delegates administrative power and allocates scarce resources to the selected townships,but does not empower them with independent fiscal power and the power to adjust the organizational structure.Selective cultivation could help develop some township governments’capacity to promote economic growth in the short term.However,the governance capacity will not be able to grow sustainably without substantial autonomous power.To enhance township governments’governance capacity in urbanization,the higher level government should continue to stick to the principle of power delegation,and to reform the fiscal system and organization structure at the township level according to the new guidelines of“enabling the local government to adjust its organizational structure”.

关 键 词：乡镇政府 自主权 治理能力 行政体制改革 

分 类 号：D67[政治法律—政治学]