“能动性调适”:乡镇政府职责动态配置的实践逻辑——基于广东省强镇扩权改革的分析  

"Active Adjustment":Practical Logic of Dynamic Allocation of Township Government Responsibilities-Based on the Analysis of the Reform of Authority Enlargement at Township Level in Guangdong Province

作　　者：黄建洪[1] 殷旺来 HUANG Jianhong;YIN Wanglai(School of Politics and Public Administration,Suzhou University,Suzhou,Jiangsu 215123,China)

机构地区：[1]苏州大学政治与公共管理学院,江苏苏州215123

出　　处：《求实》2023年第6期33-49,M0004,共18页Truth Seeking

摘　　要：优化政府职责体系是党的二十大提出的重大改革任务。作为行政层级末梢的乡镇政府,其职责动态配置是我国行政体制改革进程中的常态,但其中的具体实践逻辑与机制并未得到重点关注。基于制度—行动者的理论分析框架,以广东省强镇扩权改革历程为考察对象,提出乡镇政府职责动态配置的“能动性调适”逻辑。研究发现,持续的强镇扩权改革为地方政府核心行动者提供了改革与发展的制度空间,但该过程以自上而下运动式放权、非制度化府际分权、非对称性权责转移、非均衡性主体参与等机制为基础,这些机制的限度易引发职责体系刚化、职责承诺失信、职责执行失效、职责结构失配等一系列的行为偏差。基于地方政府自主性原则,构建由政府职责触发、识别、匹配、评估、监督五个环节耦合而成的动态配置机制,保障乡镇核心行动者的能动性和自主性,形成与经济社会发展相适配的政府职责体系,有助于推动基层治理体系和治理能力现代化。Optimizing the government responsibility system is a major reform task put forward by the 20th CPC National Congress.As the end of the administrative hierarchy,the dynamic allocation of responsibilities of township government is the normal in the process of administrative system reform in China,but the specific practical logic and mechanism have not been paid close attention to.Based on the theoretical analysis framework of system-actor,this paper takes the reform of authority enlargement at township level in Guangdong Province as the object of investigation,and puts forward the logic of"active adjustment"in the dynamic allocation of township government responsibilities.It is found that the continuous reform of authority enlargement at township level provides institutional space for the core actors of local governments to reform and develop.However,this process is based on top-down campaign-style decentralization,noninstitutionalized intergovernmental decentralization,asymmetric transfer of powers and responsibilities,unbalanced subject participation and other mechanisms.The limits of these mechanisms are likely to lead to a series of behavioral deviations,such as rigidity of the responsibility system,failure of responsibility commitment,failure of responsibility implementation,and mismatch of responsibility structure.Based on the principle of local government autonomy,constructing a dynamic allocation mechanism which is coupled by five links of government responsibilities:trigger,identification,matching,evaluation and supervision,ensuring the initiative and autonomy of the core actors at the township level,and forming a government responsibility system that is suitable for economic and social development are helpful for the modernization of system and capacity for governance at the community level.

关 键 词：政府治理 政府职责体系 乡镇政府 职责动态配置 能动性调适 制度—行动者 强镇扩权 

分 类 号：D035.5[政治法律—政治学] F320[经济管理—产业经济]