乡镇政府编外人员的规模差异及其解释——基于东部经济发达地区四个乡镇案例的比较研究  

Differences in the Scale of Unofficial Personnel in Township Governments and Their Explanations--Comparative Study Based on Four Townships in Economically Developed Eastern Regions

作　　者：杜姣 DU Jiao(Wuhan University)

机构地区：[1]武汉大学政治与公共管理学院

出　　处：《华中科技大学学报(社会科学版)》2025年第1期116-125,共10页Journal of Huazhong University of Science and Technology(Social Science Edition)

基　　金：国家社会科学基金青年项目“乡村振兴战略背景下乡村治理中的精英流失及其应对机制构建研究”(19CSH007)。

摘　　要：编外人员参与中国基层政府治理实践由来已久,是中国基层政府人事结构的内在组成部分。从现实经验来看,不仅经济欠发达地区与经济发达地区乡镇政府的编外人员规模存在差异,而且同处经济发达地区乡镇政府的编外人员规模也存在显著差异。结合对经济发达地区四个乡镇案例的比较分析,研究发现,乡镇政府的科层化水平是影响乡镇政府编外人员规模的重要变量。乡镇政府的科层化水平越高,乡镇人事配置关系越趋于刚性化。面对较大的事务量或是事务数量的增加,乡镇政府难以对乡镇既有人力资源进行灵活的调动和再配置。在编制总量控制的约束下,乡镇政府倾向于采取新增编外人员的方式,实现人与事的连接和匹配,由此导致科层化水平更高的政府往往具有更大的编外人员规模。乡镇政府科层化水平越低,乡镇人事配置关系越趋于弹性化,面对较大的事务量或是事务数量的增加,乡镇政府可以对乡镇既有人力资源进行灵活的调动和再配置。在编制总量控制的约束下,乡镇政府倾向于采取调整既有人力资源配置格局的方式,而无须大幅新增编外人员来实现人与事的连接和匹配,由此导致科层化水平更低的政府,往往具有更小的编外人员规模。The participation of unofficial personnel in the practice of grassroots government governance in China has a long history and is an inherent component of the personnel structure of grassroots government in China.From practical experience,there is not only a difference in the scale of unofficial personnel between economically underdeveloped and economically developed township governments,but also a significant difference in the scale of unofficial personnel between township governments located in economically developed areas.Based on comparative analysis of four townships in economically developed areas,the study found that the level of bureaucracy in township governments is an important variable affecting the scale of unofficial personnel in township governments.The higher the level of bureaucracy in township governments,the more rigid the personnel allocation relationship in townships tends to be.Faced with a large volume of affairs or an increase in the number of affairs,township governments find it difficult to flexibly mobilize and reconfigure existing human resources in townships.Under the constraint of total staffing control,township governments tend to adopt the approach of adding unofficial personnel to achieve the connection and matching between people and things,resulting in a higher level of bureaucracy in the government,often with a larger scale of unofficial personnel.The lower the level of hierarchical management in township governments,the more flexible the personnel allocation relationship in townships.Faced with a large amount of affairs or an increase in the number of affairs,township governments can flexibly mobilize and reconfigure existing human resources in townships.Under the constraint of total staffing control,township governments tend to adopt the approach of adjusting the existing human resource allocation pattern,without the need to significantly increase unofficial personnel,in order to achieve the connection and matching of people and things.As a result,governments with lower levels

关 键 词：乡镇政府 编外人员 科层化 人事配置 

分 类 号：D630[政治法律—政治学]