职责“边界”为何突破?——基层政府“非常规职责”的生成机理分析  

Why Did the Boundary of Responsibility Break?-An Analysis of the Formation Mechanism of“Unconventional Responsibilities”of Grass-Roots Government

作　　者：许飞 曹思远 Xu Fei;Cao Siyuan(Nanjing University,Nanjing Jiangsu 210023)

机构地区：[1]南京大学,江苏南京210023

出　　处：《天津行政学院学报》2025年第2期38-49,共12页Journal of Tianjin Administration Institute

基　　金：国家社会科学基金青年项目“高质量发展背景下的综合行政执法条块协调机制优化研究”(24CZZ047)。

摘　　要：现代政府追求清晰明确的职责体系,但实践中常出现超脱既有职责边界范围的履职行为,从而产生非正式职责或超额定职责,简称“非常规职责”。在“委托—代理”理论视域下考察职责跨界、职责扩容、职责共担三种“非常规职责”样态,可以发现基层政府“非常规职责”履职行为差异的原因是委托方与代理方“控制权”分包情况不同。进一步分析“非常规职责”的生成原因,发现基层政府事权、职责和任务存在理想和现实层面的差异,理想事权层级分明、有效分权,现实事权层级粘连、交织繁复;理想职责配置稳定、硬性边界,现实职责频繁变动、软性边界;理想任务简单明确、规范执行,现实任务复杂多变、变通执行。在风险复杂社会下,“应然清晰”与“实然模糊”两种政府职责状态将长期共存,中国基层政府在实践中承担“非常规职责”,完成非常规任务体现了基层政府面对复杂治理问题时的韧性与灵活性。Modern government pursues a clear and definite responsibility system,but in practice,the performance behavior that goes beyond the boundary of the existing government responsibility often occurs,resulting in informal responsibility or excessive responsibility,referred to as“unconventional responsibility”.Based on the principal-agent theory,the current study discusses three types of“non-conventional responsibilities”including cross-border responsibilities,expansion of responsibilities and sharing of responsibilities.The reason of differentiation in the performance behavior of“non-conventional responsibilities”is the difference in the subcontracting of“control rights”between the entrusting party and the agent.There are differences between the ideal and realistic levels of power,responsibility and task of the grass-roots government:ideal power are clear,effective decentralization,and realistic power are cohesive and intertwined;the ideal responsibility configuration is stable and hard boundary,while the realistic responsibility changes frequently and has soft boundary;the ideal task is simple,clear and standardized,while the realistic task is complex and changeable and flexible.In a society with complex risks,two types of government responsibilities,“should be clear”and“actually be vague”,will coexist in the practice of China’s grass-roots governments for a long time.Taking on“unconventional responsibilities”and completing unconventional tasks reflect the resilience and flexibility of grass-roots governments in the face of complex governance issues.

关 键 词：基层政府 非常规职责 政府职能转变 政府职责体系 

分 类 号：D630[政治法律—政治学]