中央政府如何治理地方社会?——兼论层级制国家治理结构的优化路径  

How the Central Government Governs Local Society:The Optimization Path of the Governance Structure of a Hierarchical State

作　　者：郑德洛 蒋永甫 ZHENG Deluo;JIANG Yongfu

机构地区：[1]南京理工大学马克思主义学院 [2]南京审计大学公共管理学院

出　　处：《中国矿业大学学报（社会科学版）》2024年第3期55-68,共14页Journal of China University of Mining & Technology(Social Sciences)

基　　金：国家社会科学基金项目“长三角地区农民现代化的实践路径与社会支持研究”(项目编号:23BZZ052)。

摘　　要：在大国治理中,中央政府如何治理地方社会是一个重要的制度性问题。在制度设计上存在单一制与联邦制两种国家治理结构,形成层级制治理和矩阵式治理两大模式。层级制国家治理模式存在着委托代理问题、地方自主性膨胀对中央权威和国家制度的消解问题以及层级制固有的信息失真问题。中央政府嵌入地方社会的制度设计,可以有效克服层级制国家治理结构产生的国家治理难题。中央政府嵌入地方社会主要有两种类型,即职能嵌入与服务嵌入:前者指中央在地方设立中央垂直管理的嵌入机构,实现中央政府职能向地方社会的下沉,在某些领域形成中央对地方的直接治理;后者指中央政府基于基本公共服务均等化的考虑,在地方社会设立的服务机构,由中央政府直接向地方民众提供属于中央政府事权的基本公共服务。中央政府嵌入地方社会的做法不仅能够加强中央与地方之间的沟通与协作,还能实现更为有效的双向监督,这些无疑会大大提升国家治理的效率和绩效,使政策制定和调整更加贴近实际,更富有针对性。According to the spatial allocation,relationship and direction of state power,there are two structures of state governance,namely hierarchical governance structure and composite matrix governance structure.The two state governance structures have their own advantages and disadvantages.It provides a new perspective that the central government embeds itself in local society to optimize the hierarchical governance structure.Through the institutional design for the central government to embed itself in local society,we can effectively overcome the principalagent problems caused by the hierarchical state governance structure,the erosion of central authority and state system by the expansion of local autonomy,and the inherent information distortion problem of the hierarchical system.There are two main types of the central government embedding in local society:functional embedding and service embedding.The practice of integrating the central government into local society not only strengthens communication and collaboration between the central and local governments but also enables more effective two-way supervision.This will undoubtedly greatly improve the efficiency and performance of national governance,making policy formulation and adjustment more practical and targeted.

关 键 词：中央政府 地方社会 层级制 国家治理 

分 类 号：D668[政治法律—政治学]