基层政府编外人员规模隐性扩张机制研究--基于A县的案例分析  

The Implicit Expansion Mechanism of the Informal Staff Size of Local Government:A Case Study of A County

作　　者：王锦花[1] 吴少龙[2] 唐文婷 Jinhua Wang;Shaolong Wu;Wenting Tang

机构地区：[1]华南农业大学公共管理学院 [2]中山大学公共卫生学院

出　　处：《公共行政评论》2022年第3期80-97,M0005,共19页Journal of Public Administration

基　　金：国家社科基金一般项目“基层政府编外人员规模隐性扩张治理研究”(21BZZ106)。

摘　　要：财政供养人员只减不增,基层政府编内人员总量严格控制,可编外人员却隐性扩张。为增强组织弹性和适应能力,基层政府在直接增加编制内人员和合同外包之外发展出了编外扩张的第三条道路。以往研究主要关注用人单位为什么要编外扩张,而对于为何能以及如何扩张的问题研究不足。在解释政府规模扩张的需求理论和供给理论基础上,论文建构了一个绩效管理制度环境下的双重软约束框架,分析基层政府编外扩张机制与过程。研究以A县编外扩张为例,分析“要编”的用人单位与“控编”的编制和财政部门之间的动态博弈过程,发现基层编外人员扩张的关键在于用人单位扩编要编的需求和冲动没有得到有效遏制。在上级部门绩效考核强压力和基层政府弱惩罚制度环境下,编制软约束和预算软约束是最重要的机制。研究深化了对基层政府编制管理的认识,有助于国家治理体系和治理能力的现代化。The number of local staff supported by public budgeting must be reduced which has established rigid limitations.Formal staff is constricted but informal staff is expanded.To enhance organizational flexibility and adaptability,local governments in China have developed a third way of informal staff expansion without directly increasing the internal personnel of the bureaucratic system or contract outsourcing.Previous studies focused on the necessity of informal staff scale expansion but paid little attention to operations.Based on the demand theory and supply theory of government scale expansion,this paper constructs a dual soft constraint framework under the performance management system to analyze the mechanism and process of informal staff expansion in local governments.Taking A county as an example,this research studies the dynamic game process between functional departments which apply for more informal staff and the control departments focused on financial and personnel management.We found the“dual soft constraint frame”was the action logic which lead to informal staff expansion.Local governments face strong pressure in perform ance evaluation from superior departments but only weak punishment for informal staff expansion within the internal government.This study deepens our understanding of the personnel structure management of local governments and contributes to the modernization of the national governance system and the improvement of governance capacity.

关 键 词：编制管理 政府规模 隐性扩张 编制软约束 预算软约束 

分 类 号：D63[政治法律—政治学]