职责泛化下的弹性治理:基层政府“编外扩张”的一个解释框架  

Elastic Governance under the Generalization of Responsibilities:An Explanatory Framework for the"Extra-bianzhi Expansion"of Grassroots Government

作　　者：杨秋月 邱实[2,3] Yang Qiuyue;Qiu Shi

机构地区：[1]江苏省社会科学院社会政策研究所(区域现代化研究院),南京210004 [2]南京师范大学公共管理学院,南京210023 [3]南开大学中国政府发展联合研究中心,南京210023

出　　处：《南京社会科学》2025年第1期70-81,共12页Nanjing Journal of Social Sciences

基　　金：国家社科基金一般项目“基层政府‘编外扩张’的发生机理及治理策略研究”(23BZZ082)的阶段性成果。

摘　　要：基层政府编外人员存在持续扩张的现象,对基层治理产生较大影响。以政府职责为切口,可以将基层政府的职责泛化视为编外人员扩张的根源,即基层政府实际承担的职责在多重因素的作用下超出原有的职责限度,发生较为明显的“溢出”“模糊”等现象,并具体呈现为职责范畴、职责标准和职责主体的泛化。基层政府通过不断增加编外人员,提升基层治理的弹性,用以应对职责泛化。在“编外扩张”的基础上,基层政府在治理过程中提升组织弹性、行政弹性和风险弹性,有效降低了职责泛化所造成的负面影响,但也引发了诸多治理问题。通过构建科学合理的政府职责体系与塑造依责而行的编外人员管理机制来抑制职责泛化和规制治理弹性,是治理基层政府“编外扩张”并保持基层治理效能的可行路径。The continuous expansion of extra-bianzhi personnel in grassroots government has a significant impact on grassroots governance.Taking government responsibilities as a starting point,the generalization of responsibilities of grassroots government can be seen as the root cause of extrabianzhi expansion,that is,the actual responsibilities undertaken by grassroots governments exceed the original scope of responsibilities under the influence of multiple factors,resulting in obvious phenomena such as"overflow"and"ambiguity",and specifically manifested as the generalization of responsibility categories,responsibility standards,and responsibility subjects.Grassroots government enhance the flexibility of grassroots governance by continuously increasing extra-bianzhi personnel to cope with the generalization of responsibilities.On the basis of"extra-bianzhi expansion",grassroots government has improved organizational flexibility,administrative flexibility,and risk flexibility in the governance process,effectively reducing the negative impact caused by the generalization of responsibilities,but also causing many governance problems.Constructing a scientific and reasonable government responsibility system and shaping a extra-bianzhi personnel management mechanism that operates in accordance with responsibilities to curb the generalization of responsibilities and regulate governance flexibility is a feasible path for governing the"extra-bianzhi expansion"of grassroots government and maintaining the effectiveness of grassroots governance.

关 键 词：基层政府 编外扩张 政府职责 弹性治理 

分 类 号：D630.3[政治法律—政治学]