条块关系从合作共治到协作互嵌:基层政府负担的生成及破解  

Analysis of Tiao-kuai Relation from Co-governance to Cooperative Embeddedness:The Generation and Solution of Grass-roots Government Burden

作　　者：周振超 黄洪凯 Zhou Zhenchao;Huang Hongkai

机构地区：[1]西南政法大学政治与公共管理学院

出　　处：《公共管理与政策评论》2022年第1期19-33,共15页Public Administration and Policy Review

基　　金：国家社会科学基金一般项目“推进基层政府减负的机制和路径研究”(20BZZ038)。

摘　　要：妥善协调处理条块关系是推进基层治理体系和治理能力现代化需要解决的基础性问题。理顺条块关系、化解条块矛盾的有效途径既非对"条""块"二者关系的简单割裂,也非"条""块"的机械融合。简单割裂将致使治理资源分散,机械融合则易导致条块间职责不清。为构建简约高效的基层管理体制,需要探求一条如何将"条条"的专业和技术优势与"块块"的统筹和属地优势有机结合起来的新路径,通过对传统条块合作共治的治理结构进行创造性转化和创新性发展,进而构建条块在基层协作互嵌的治理模式,以便向基层放权赋能,减轻基层负担。从条块合作共治到条块协作互嵌的实施路径是:将"上面千条线"有机嵌入基层政府"一根针",不简单照搬上级机关设置模式;健全政府职责体系,理顺和明确条块权责关系;党建引领条块协作互嵌,规范垂直管理体制和地方分级管理体制。To properly handle the Tiao-kuai Relation is a fundamental issue in Promoting the modernization of the system and capacity of grass-roots governance.An effective way of straightening out the Tiao-kuai Relation and resolving the contradictions is neither a simple separation nor a mechanical integration.Continuous fragmentation will result in decentralized governance resources,while mechanical integration will lead to unclear rights and responsibilities.Therefore,exploring an innovative way to combine the professional,technical advantages with the overall planning and territorial advantages in Tiao-kuai Relation is to build a simple and efficient administrative system of grass-roots government.The Tiao-kuai cooperative embeddedness model will be constructed,according to the creative transformation and innovative development of the traditional Tiao-kuai co-governance Relation,so as to realize decentralization and empowerment,even reduce the grass-roots government burden.The implementation path from co-governance to cooperative embeddedness contains organically embedding the"top thousand lines"into the"one needle"of grass-roots government,not simply copying the setting modes of higher authorities,improving the responsibility system of grass-roots government,straightening out and clarifying the"Tiao-kuai"Relation between rights and responsibility,cooperative embeddedness of"Tiao-kuai"Relation led by the Communist Party of China,standardizing the vertical management system and the local hierarchical management system.

关 键 词：条块关系 条块矛盾 属地管理 基层政府负担 

分 类 号：D630[政治法律—政治学]