从行政分权到跨域治理:我国地方政府治理方式变革研究

从集权到分权再到伙伴关系,从统治到治理再到跨域治理,西方发达国家地方政府治理方式呈现出螺旋式发展路径。我国的分权化改革打破了计划经济体制下地方政府被动羸弱的状态,在激发了地方政府发展经济的动力的同时,引发了"地方政府企业化"倾向,形成了分割的"行政区经济"。市场化改革在引入和整合体制外社会经济资源的同时,也导致政府与市场结合成"不受约束"的增长联盟,反而削弱了政府的权威。跨域治理理念旨在强化政府组织、市场组织和社会组织之间的资源整合,鼓励各种治理组织的参与,以共同应对跨行政区、跨部门、跨领域的公共事务。该文结合我国地方政府的实际情况,认为通过以下途径可以实现地方政府跨域治理:1)分权与赋权相结合,引进并整合体制外的社会经济资源,把决策权力向企业、社区和非营利组织转移;2)统筹协调各治理组织间的关系,促进城市政体内的权力平衡,以利益协调为基点,促使治理规则由支配性规则向共识性规则转变;3)综合运用行政化手段和市场化手段调整地方政府间关系,实现府际合作,促使地方政府由竞争型政府向合作型政府转变。

From Decentralization to Governance-Across-Boundary: Study on the Transformation of Local Government Governance Methods in China

The local government governance methods in the western developed countries took shape a spiral upward path: from centralization to decentralization and even to partnership,and also from government to governance and even to governance-across-boundary.The decentralization-oriented reformation broke the passive and weak situation of the local governments under the planning economy system,and fired up their motive force to develop,but also led to the tendency of corporatlization and resulted in self-contained district economy.The marketization-oriented reformation have introduced and integrated out-system resources in social and economic development,but as the same time resulted in uncontrolled growth coalitions between government and corporations which eroded government's authority.The theory of governance-across-boundary implies that we should integrate the social and economic resources among governments,corporation organizations and social organizations,and encourage them to participate and collaborate in dealing with public affairs across districts,across departments and across fields.The study based on Chinese practice finds that the following methods can make governance-across-boundary of local governments came into being: using the joint decentralization and empowerment policy to introduce and integrate outer-system social and economic resources and transfer some decision-making power into corporations,communities and non-government organizations;coordinating the relation among governance organizations,and basing on interest relations to balance the power relation in urban regimes,and promoting the government regulations transformed from dominating rules to common consensus roles;applying administrating methods and marketing methods to promote the collaboration among local governments and promote the local government transformed from competitive government to collaborate government.