直辖市直管县（区）的行政区划层级设置及其对省县直辖的借鉴意义研究
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摘要
上世纪八十年代初我国之所以确立了市管县体制,政策动因是为了推进城乡建设一体化,发挥中心城市的经济优势,对县乡产生辐射效应,使城市带动乡村的发展,但从现实情况看,很多县的发展并没有从中受益,反而受到了很大的束缚。随着我国社会主义市场经济体制的逐步确立,“市管县”体制的弊端开始不断显现,市县之间在经济利益、行政管理以及城乡关系上的矛盾逐步激化。
针对以上情况,2005年6月,温家宝总理在农村税费改革工作会议上指出:“具备条件的地方,可以推进‘省直管县’试点”,十六届五中全会通过的“十一五”规划的《中共中央关于制定十一五规划的建议》则明确提出要“减少行政层级”,传达出重要的改革信息,由此,“省管县”的改革思路已经渐渐浮出水面。
重庆市是我国最年轻的直辖市,其超广域性特征极为明显,重庆市更类似于一级省级建制,是一个具有中等省构架和欠发达省份特征的直辖市。因此,重庆市的“直辖市——县(区)”模式对我国的“省管县”改革有着极大的借鉴意义。
本文针对重庆市的“直辖市——县(区)”及其对“省管县”改革的借鉴意义进行了论述,具体的思路如下:
第一部分,主要论述研究的背景、意义以及研究现状,并介绍了本文的技术路线、研究方法及创新之处。
第二部分,此部分主要是行政区划层级理论概述。主要介绍了行政区划层级的内涵、国际通行的行政区划层级模式以及我国现行的行政区划层级体制。
第三部分,在对市管县内涵及沿革介绍的基础上从正反两方面论述了我国现行的市管县体制,最后论述了市管县改革的必要性。
第四部分,主要围绕重庆市的“直辖市——(县)区”模式展开论述,内容主要包括了重庆市行政区划的沿革以及现行的重庆市行政区划层级体制论述。
第五部分,在前文论述的基础上,总结了重庆市“直辖市——县(区)”模式的经验,并对该模式的意义进行了论述。
第六部分,从重庆市的“超广域性”特征谈起,总结出了“重庆市是一个具有中等省构架和欠发达省特征的直辖市”的结论,从而进一步论述了重庆直辖市行政区划层级模式对我国“省管县”改革的简介意义,在此基础上,具体论述了我国进行省管县改革的外部环境以及路径选择。
第七部分,对全文进行了总结,并对后续研究进行了展望。
In the 1980s,“counties directly administrated under the cities”system has been established. This system is established to promote the integration of urban and rural areas and lead to the development of rural areas. In fact, many counties did not benefit from this system, but rather by a lot of constraints. As China's socialist market economic system is establishing gradually, the shortcomings of“counties directly administrated under the cities”system began to appear. The conflict of the economic interests and administration between urban and rural areas become more and more serious.
For the above reasons, Premier Wen Jiabao brought up that the provinces that the conditions are right can try to put the“counties directly administrated under the province”system into practice in June 2005. During the fifth plenary session of the 16th central committee of the Communist Party of China (CPC) in October 2005, the idea of“reduce the administrative level”had also been mentioned. The tendency towards the innovation of administrative level has been more clear than it was in past.
Chongqing is China's newest municipality directly under the central government, its“ultra-wide-area”feature is extremely obvious. Chongqing municipality directly under the central government is more similar to a medium scale and less developed province. Therefore, the experience of Chongqing's administrative level innovation is applicable to use for reference.
In this paper,“The counties directly administrated under the municipality”system is discussed as the following thought:
The first part focuses on the background, significance and present situation of the study, the research methods and innovation is also mentioned.
The second part is mainly on the administrative division hierarchy theoretical overview. The common administrative division hierarchy system is discussed in this part.
The origin of“counties directly administrated under the cities”system is discussed in the third part first, the necessity of administrative division hierarchy innovation is also discussed in this part.
Part IV mainly focuses on the city of Chongqing's administrative division hierarchy system. The“municipalities - (County) District”is discussed in this part.
Part V is about the experience and the significance of Chongqing's administrative division hierarchy system.
Part VI is mainly on the reference significance of Chongqing's administrative division hierarchy system, and discussed the way of china's administrative division hierarchy innovation.
Part VII is a summary of the full text, and a prospect of follow-up study.
针对以上情况,2005年6月,温家宝总理在农村税费改革工作会议上指出:“具备条件的地方,可以推进‘省直管县’试点”,十六届五中全会通过的“十一五”规划的《中共中央关于制定十一五规划的建议》则明确提出要“减少行政层级”,传达出重要的改革信息,由此,“省管县”的改革思路已经渐渐浮出水面。
重庆市是我国最年轻的直辖市,其超广域性特征极为明显,重庆市更类似于一级省级建制,是一个具有中等省构架和欠发达省份特征的直辖市。因此,重庆市的“直辖市——县(区)”模式对我国的“省管县”改革有着极大的借鉴意义。
本文针对重庆市的“直辖市——县(区)”及其对“省管县”改革的借鉴意义进行了论述,具体的思路如下:
第一部分,主要论述研究的背景、意义以及研究现状,并介绍了本文的技术路线、研究方法及创新之处。
第二部分,此部分主要是行政区划层级理论概述。主要介绍了行政区划层级的内涵、国际通行的行政区划层级模式以及我国现行的行政区划层级体制。
第三部分,在对市管县内涵及沿革介绍的基础上从正反两方面论述了我国现行的市管县体制,最后论述了市管县改革的必要性。
第四部分,主要围绕重庆市的“直辖市——(县)区”模式展开论述,内容主要包括了重庆市行政区划的沿革以及现行的重庆市行政区划层级体制论述。
第五部分,在前文论述的基础上,总结了重庆市“直辖市——县(区)”模式的经验,并对该模式的意义进行了论述。
第六部分,从重庆市的“超广域性”特征谈起,总结出了“重庆市是一个具有中等省构架和欠发达省特征的直辖市”的结论,从而进一步论述了重庆直辖市行政区划层级模式对我国“省管县”改革的简介意义,在此基础上,具体论述了我国进行省管县改革的外部环境以及路径选择。
第七部分,对全文进行了总结,并对后续研究进行了展望。
In the 1980s,“counties directly administrated under the cities”system has been established. This system is established to promote the integration of urban and rural areas and lead to the development of rural areas. In fact, many counties did not benefit from this system, but rather by a lot of constraints. As China's socialist market economic system is establishing gradually, the shortcomings of“counties directly administrated under the cities”system began to appear. The conflict of the economic interests and administration between urban and rural areas become more and more serious.
For the above reasons, Premier Wen Jiabao brought up that the provinces that the conditions are right can try to put the“counties directly administrated under the province”system into practice in June 2005. During the fifth plenary session of the 16th central committee of the Communist Party of China (CPC) in October 2005, the idea of“reduce the administrative level”had also been mentioned. The tendency towards the innovation of administrative level has been more clear than it was in past.
Chongqing is China's newest municipality directly under the central government, its“ultra-wide-area”feature is extremely obvious. Chongqing municipality directly under the central government is more similar to a medium scale and less developed province. Therefore, the experience of Chongqing's administrative level innovation is applicable to use for reference.
In this paper,“The counties directly administrated under the municipality”system is discussed as the following thought:
The first part focuses on the background, significance and present situation of the study, the research methods and innovation is also mentioned.
The second part is mainly on the administrative division hierarchy theoretical overview. The common administrative division hierarchy system is discussed in this part.
The origin of“counties directly administrated under the cities”system is discussed in the third part first, the necessity of administrative division hierarchy innovation is also discussed in this part.
Part IV mainly focuses on the city of Chongqing's administrative division hierarchy system. The“municipalities - (County) District”is discussed in this part.
Part V is about the experience and the significance of Chongqing's administrative division hierarchy system.
Part VI is mainly on the reference significance of Chongqing's administrative division hierarchy system, and discussed the way of china's administrative division hierarchy innovation.
Part VII is a summary of the full text, and a prospect of follow-up study.
引文
薄贵利.稳步推进省直管县体制[J].中国行政管理, 2006,(9):29-31.
陈潮.中国行政区划沿革手册[M].北京:中国地图出版社, 1992.
陈小京,伏宁,黄富高.中国地方政府体制结构[M].中国广播电视出版社, 2001.
重庆统计局.重庆统计年鉴[J].北京:中国统计出版社, 2000～2006.
杜钢建.如何看待“市县分置”[J].决策咨询, 2004,(1): 8-9.
杜钢建.冲出市管县体制樊篱[J].中国经济周刊, 2004, (4): 22-23.
戴均良.中国市制[M].北京:中国地图出版社, 2000.
郭宝平.中国传统行政制度通论[M].北京:中国广播电视出版社, 2000.
华涛.中国政府层级调整的工具性选择及逻辑起点[J].唯实, 2006,(12): 52-54.
何显明.市管县体制及其变革路径选择的制度分析——兼论“复合行政”概念[J].中国行政管理, 2004,(7): 70-74.
靳尔刚.行政区划与地名管理[M].北京:中国社会出版社, 1996.
贾康.把市县建成“扁平化”的基层政府[J].小康, 2007(1): 33.
罗德刚.重庆直辖市行政体制的特色及启示[J].中国行政管理, 2004(3): 37-40.
李丹阳.“强县扩权”的体制突破意义[N].新京报, 2004, 4-6 .
刘君德.中外行政区划比较研究[M].上海:华东师范大学出版社, 2002.
刘君德,靳润成,周克瑜.中国政区地理[M].北京:科学出版社, 1999.
刘君德.中国行政区划的理论与实践[M].上海:华东师范大学出版社, 1996.
吕帅.日本行政区划体制的形成与改革及其对中国的启示[J].中国人口资源与环境, 2007(,17): 139-141.
马述林.论省级行政区划体制改革[J].战略与管理, 1996(5): 10-16.
浦善新.中国行政区划改革研究[M].北京:商务印书馆, 2006.
浦兴祖.当代中国政治制度[M].上海:复旦大学出版社, 1999.
齐志宏.多级财政体制比较研究[M].北京:中国财政经济出版社,2003.
孙开,彭健.财政管理体制创新研究[M].北京:中国社会科学出版社,2004
孙学玉.强县扩权与市管县体制改革的必要性分析[J].中国行政管理, 2006,(5): 56-59.
孙学玉,伍开昌.当代中国行政结构扁平化的战略构想[J].中国行政管理, 2004,(3): 79-81.
王怀岳.中国县域经济发展实论[M].北京:人民出版社, 2001.
王宏伟.行政制度创新与行政改革[M].北京:中国商业出版社, 2004.
韦庆远.中国政治制度史[M].北京:中国人民大学出版社, 2003.
汪宇明.中国省直管县市与地方行政区划层级体制的改革研究[J].人文地理, 2004(,12): 71-74.
于鸣超.现代国家制度下的中国县制改革[J].战略与管理, 2002,(1): 87-98.
周定国,纪京慧.世界行政区划图册[M].北京:地图出版社, 1999.
张立荣.中外行政制度比较(上、下)[M].北京:商务印书馆, 2002.
朱舜.县域经济学通论[M].北京:人民出版社, 2001.
卓勇良.关于省直接管辖县(市)的若干研究[J].经济社会体制比较, 2003,(5): 109-115.
张占斌.省直管县改革与县域经济发展[J].学习月刊, 2005,(11): 19-20.
张占斌.省管县从财政体制到行政体制[J].小康, 2007(1): 34-35.
张占斌.省直管县的新走向[J].决策, 2006,(1): 38-39.
张占斌.市管县体制25年观察[J].决策, 2008,(1): 42-44.
Andrew Coulson: Local Government In Eastern Europe[M]. Edword Elgar publishing, Ltd, 1995.
Chaney, Barbara A.; Copley, Paul A.; Stone, Mary S. The effect of fiscal stress and balanced budget requirements on the funding and measurement of state pension obligations[J]. Journal of Accounting and Public Policy Volume: 21,Issue: 4-5, Winter, 2002, pp. 287-313.
Deil S.Wright:Globalization,Governance and Dimension of Deoentralization:an Intergovernmental Model for Local (island) Automomy[M]. 1996.
Diego Prior, Emili Tortosa-Ausina. On the determinants of local government performance: A two-stage nonparametric approach[J]. European Economic Review2(2007):425-451.
Dixit, Avinash; Londregan, John: Fiscal federalism and redistributive politics[J]. Journal of Public Economics Volume: 68, Issue: 2, May, 1998, pp153一180.
Gareth Enticott, Tom Entwistle. The spaces of modernisation: Outcomes, indicators and the local government modernisation agenda[M]. Geoforum Press, 2007.
Mark Robson, Shashi Kant. The development of government agency and stakeholder cooperation: A comparative study of two Local Citizens Committees' (LCCs) participation in forest management in Ontario[M]. Canada Forest Policy and Economics, In Press,2007.
Jones, Mark P.; Sanguinetti, Pablo; Tommasi, Mariano Politics, institutions, and fiscal performance in a federal system: an analysis of the Argentine provinces[J]. Journal of Development Economics Volume: 61,Issue: 2, April, 2000, pp. 305-333.
Meek,Jack W. Keith Schildt,Matt Witt. 2002.“Local Government Administration in a Metropolitan Context,”in H. George Frederickson and John Nalbandian.The Future of Local Government Administration[M]. Washington D. C.; International City Management Association.
Mills, E. S. and B. W. Hamilton: Urban Economics[M]. Harper Collins College Publishers, Edition5th ,1994.
Oates, Wallace (1989),Search for Leviathan: A Reply and Some Further Reflections[J]. American Economic Review,75,748-757.
Paul W. Rhode, Koleman S. Strumpf: A Historical Test of the Tiebout Hypothesis: Local Heterogeneity from 1850 to 1990[J]. NBER Working Paper No. w7946, Issued in October 2000.
Rog E. H. Mellor: Nation, State and Territory, Rout Ledge[M]. London and New York, 1989.
Ver Eecke, W. Public goods: An ideal concept[J]. The Journal of Socioeconomics Volume: 28, Issue: 2, July, 1999, pp. 139-156.
陈潮.中国行政区划沿革手册[M].北京:中国地图出版社, 1992.
陈小京,伏宁,黄富高.中国地方政府体制结构[M].中国广播电视出版社, 2001.
重庆统计局.重庆统计年鉴[J].北京:中国统计出版社, 2000～2006.
杜钢建.如何看待“市县分置”[J].决策咨询, 2004,(1): 8-9.
杜钢建.冲出市管县体制樊篱[J].中国经济周刊, 2004, (4): 22-23.
戴均良.中国市制[M].北京:中国地图出版社, 2000.
郭宝平.中国传统行政制度通论[M].北京:中国广播电视出版社, 2000.
华涛.中国政府层级调整的工具性选择及逻辑起点[J].唯实, 2006,(12): 52-54.
何显明.市管县体制及其变革路径选择的制度分析——兼论“复合行政”概念[J].中国行政管理, 2004,(7): 70-74.
靳尔刚.行政区划与地名管理[M].北京:中国社会出版社, 1996.
贾康.把市县建成“扁平化”的基层政府[J].小康, 2007(1): 33.
罗德刚.重庆直辖市行政体制的特色及启示[J].中国行政管理, 2004(3): 37-40.
李丹阳.“强县扩权”的体制突破意义[N].新京报, 2004, 4-6 .
刘君德.中外行政区划比较研究[M].上海:华东师范大学出版社, 2002.
刘君德,靳润成,周克瑜.中国政区地理[M].北京:科学出版社, 1999.
刘君德.中国行政区划的理论与实践[M].上海:华东师范大学出版社, 1996.
吕帅.日本行政区划体制的形成与改革及其对中国的启示[J].中国人口资源与环境, 2007(,17): 139-141.
马述林.论省级行政区划体制改革[J].战略与管理, 1996(5): 10-16.
浦善新.中国行政区划改革研究[M].北京:商务印书馆, 2006.
浦兴祖.当代中国政治制度[M].上海:复旦大学出版社, 1999.
齐志宏.多级财政体制比较研究[M].北京:中国财政经济出版社,2003.
孙开,彭健.财政管理体制创新研究[M].北京:中国社会科学出版社,2004
孙学玉.强县扩权与市管县体制改革的必要性分析[J].中国行政管理, 2006,(5): 56-59.
孙学玉,伍开昌.当代中国行政结构扁平化的战略构想[J].中国行政管理, 2004,(3): 79-81.
王怀岳.中国县域经济发展实论[M].北京:人民出版社, 2001.
王宏伟.行政制度创新与行政改革[M].北京:中国商业出版社, 2004.
韦庆远.中国政治制度史[M].北京:中国人民大学出版社, 2003.
汪宇明.中国省直管县市与地方行政区划层级体制的改革研究[J].人文地理, 2004(,12): 71-74.
于鸣超.现代国家制度下的中国县制改革[J].战略与管理, 2002,(1): 87-98.
周定国,纪京慧.世界行政区划图册[M].北京:地图出版社, 1999.
张立荣.中外行政制度比较(上、下)[M].北京:商务印书馆, 2002.
朱舜.县域经济学通论[M].北京:人民出版社, 2001.
卓勇良.关于省直接管辖县(市)的若干研究[J].经济社会体制比较, 2003,(5): 109-115.
张占斌.省直管县改革与县域经济发展[J].学习月刊, 2005,(11): 19-20.
张占斌.省管县从财政体制到行政体制[J].小康, 2007(1): 34-35.
张占斌.省直管县的新走向[J].决策, 2006,(1): 38-39.
张占斌.市管县体制25年观察[J].决策, 2008,(1): 42-44.
Andrew Coulson: Local Government In Eastern Europe[M]. Edword Elgar publishing, Ltd, 1995.
Chaney, Barbara A.; Copley, Paul A.; Stone, Mary S. The effect of fiscal stress and balanced budget requirements on the funding and measurement of state pension obligations[J]. Journal of Accounting and Public Policy Volume: 21,Issue: 4-5, Winter, 2002, pp. 287-313.
Deil S.Wright:Globalization,Governance and Dimension of Deoentralization:an Intergovernmental Model for Local (island) Automomy[M]. 1996.
Diego Prior, Emili Tortosa-Ausina. On the determinants of local government performance: A two-stage nonparametric approach[J]. European Economic Review2(2007):425-451.
Dixit, Avinash; Londregan, John: Fiscal federalism and redistributive politics[J]. Journal of Public Economics Volume: 68, Issue: 2, May, 1998, pp153一180.
Gareth Enticott, Tom Entwistle. The spaces of modernisation: Outcomes, indicators and the local government modernisation agenda[M]. Geoforum Press, 2007.
Mark Robson, Shashi Kant. The development of government agency and stakeholder cooperation: A comparative study of two Local Citizens Committees' (LCCs) participation in forest management in Ontario[M]. Canada Forest Policy and Economics, In Press,2007.
Jones, Mark P.; Sanguinetti, Pablo; Tommasi, Mariano Politics, institutions, and fiscal performance in a federal system: an analysis of the Argentine provinces[J]. Journal of Development Economics Volume: 61,Issue: 2, April, 2000, pp. 305-333.
Meek,Jack W. Keith Schildt,Matt Witt. 2002.“Local Government Administration in a Metropolitan Context,”in H. George Frederickson and John Nalbandian.The Future of Local Government Administration[M]. Washington D. C.; International City Management Association.
Mills, E. S. and B. W. Hamilton: Urban Economics[M]. Harper Collins College Publishers, Edition5th ,1994.
Oates, Wallace (1989),Search for Leviathan: A Reply and Some Further Reflections[J]. American Economic Review,75,748-757.
Paul W. Rhode, Koleman S. Strumpf: A Historical Test of the Tiebout Hypothesis: Local Heterogeneity from 1850 to 1990[J]. NBER Working Paper No. w7946, Issued in October 2000.
Rog E. H. Mellor: Nation, State and Territory, Rout Ledge[M]. London and New York, 1989.
Ver Eecke, W. Public goods: An ideal concept[J]. The Journal of Socioeconomics Volume: 28, Issue: 2, July, 1999, pp. 139-156.