经济发达镇“权虚责实”悖论的生成与化解——基于简政放权的视角被引量：12

The Formation and Solution of the Paradox of “Vague Power and Real Responsibility” in Economically Developed Towns based on the Perspective of Streamlining Administration and Delegating Power

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摘要 "强镇扩权"改革十余年来,权力的下沉缓解了经济发达镇"权小责大"的困境,镇级"看得见的管不着、管得着的看不见"的权责悖论得到初步化解,但改革并未使镇级政府走向"权责一致",而是陷入"权虚责实"的新悖论:一方面,简政放权将权力下放至不完全属于镇级管辖的条条机构;另一方面,管理重心下移与属地管理模式却不断强化了镇级的属地责任。在条块结合的镇级组织架构下,改革并未将治权和治责下放给同一主体,镇级治理呈现"形式上有权、实质无权"的特征。"权虚责实"导致镇级面临过大的治理责任,并不断通过各种非正式方式与条块部门博弈,从而进一步增加了基层治理的难度。改革路径应在解决体制束缚的基础上破除上级部门阻力,系统推进发达镇行政体制改革。 Over more than ten years of the reform of"strengthening towns to expand their power",more administrative power had been delegated to township government which alleviates the predicament of"little power and heavy responsibility"in those towns.The paradox of rights and responsibilities that is"the visible affairs you can’t control and the controllable affairs you can’t catch sight of"at the township level has been initially resolved.However,the reform did not make the township government transfer to the status of"unity of power and responsibility".Instead,it’s falling into a new paradox which can be called"vague power and real responsibility".On the one hand,the administrative power has been delegated to superior vertical lines agencies which are set in township government,but not controlled by them.On the other hand,The downshifting/sinking of the management focus and the territorial management mode have continuously strengthened the territorial responsibility of the township government.Under the special organizational structure at the township government,the reform does not delegate governance power and responsibility to the same subject,which results in"the formal but not real power"in township government."Vague power and real responsibility"made the township government face excessive governance responsibilities and constantly play games and bargain with various agencies through various informal ways,which further increases the difficulty of grassroots governance.It is required to solve the institutional constraints and eliminate the resistance from the superior departments to promote the reform of administrative system in developed towns systematically.

作者叶贵仁欧阳航 YE Guiren;OUYANG Hang(School of Public Administration,South China University of Technology,Guangzhou,Guangdong,510630;School of Government,Peking University,Beijing,100871)

机构地区华南理工大学公共管理学院北京大学政府管理学院

出处《行政论坛》 CSSCI 北大核心 2021年第2期134-141,共8页 Administrative Tribune

基金国家社会科学基金项目“简政放权视野下的经济发达镇行政体制改革路径研究”(17BZZ049)

关键词行政体制改革简政放权镇级治理 “权虚责实” reform of administrative system streamlining administration and delegating power township governance "vague power and real responsibility"

分类号 D630 [政治法律—中外政治制度]

作者简介叶贵仁(1977—),男,河北邯郸人,教授,博士研究生导师,从事行政体制改革与基层治理研究;欧阳航(1994—),男,广东梅州人,博士研究生,从事行政体制改革与基层治理研究。