科层体制扩张:东部发达地区基层政府编外用工的理论解释  

Bureaucratic Expansion:A Theory Explanation of the Extra-staff Employment of the Grass-roots Government in Eastern Areas

作　　者：田先红[1] TIAN Xian-hong(Central China Normal University)

机构地区：[1]华中师范大学政治学与国家治理研究院(中国农村研究院)

出　　处：《华中科技大学学报(社会科学版)》2025年第2期38-45,共8页Journal of Huazhong University of Science and Technology(Social Science Edition)

基　　金：国家社会科学基金重大项目“县乡治理现代化的制度架构与运行机制研究”(23&ZD139)。

摘　　要：基层政府聘用编外人员的行为与其科层化水平有着密切关联。科层化水平越高的基层政府,越倾向于聘用编外人员应对新增的治理任务,其编外人员规模就越大;反之,基层政府科层化水平越低,其灵活性越强,可以通过弹性化的人力资源配置来应对各种治理任务,其对聘用编外人员的需求就较小,从而可以不必或者较少聘用编外人员。在东部发达地区,由于科层体制本身较为稳定,基层政府较难通过制度和机制创新来调动、整合既有人员,而更多地寻求变革体制、增加编外人员的方式来应对不断增多的治理事务。东部发达地区雄厚的财政实力为其聘用编外人员提供了经济基础,促进其体制扩张的强化和依赖。体制扩张虽有助于在短时期内完成治理任务,但同时容易带来人员冗余,体制变得更为臃肿。从科层体制扩张的角度探讨东部发达地区基层政府编外用工规模增长的机制,为学界理解基层编外用工现象提供了一个新视角。There is a close relationship between the extra-staff and the level of bureaucracy.The more hierarchical the grass-roots government is,the more inclined it is to employ extra-staff to deal with the new governance tasks,and the larger the extra-staff will be.On the contrary,the lower the level of bureaucracy,the stronger the flexibility of the grass-roots government.It can cope with various governance tasks through flexible human resources allocation,and it has less demand for hiring supernumerary staff,so it can not employ or employ less extra-staff.In the developed eastern areas,the bureaucratic system itself is relatively stable.It is difficult for grass-roots government to mobilize and integrate existing personnel through system and mechanism innovation,and they are more likely to seek ways to reform the system and increase the number of extra-staff members to cope with the increasing number of governance affairs.The strong financial strength of the developed eastern areas provides the economic basis for hiring supernumerary staff and promotes the strengthening and dependence of their institutional expansion.Although the expansion of the bureaucratic system helps to complete the task of governance in a short period of time,it is easy to bring personnel redundancy and make the system more bloated.Taking the level of bureaucracy as an important variable to understand the regional differences of the grassroots government's extra-staff employment provides a new perspective for the academic community to understand the phenomenon of extra-staff employment at the grassroots level.

关 键 词：基层政府 编外人员 科层体制扩张 科层制 

分 类 号：D630.3[政治法律—政治学]