强镇扩权的理论与实证分析
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摘要
当前中国正处于体制转轨和社会转型时期,在这个时期出现了一系列经济和社会问题,乡镇政府作为基层政权的末梢,处于体制冲突和矛盾的焦点。乡镇政府权力不但没有加强,而是在集权化当中逐步地弱化,已经对社会稳定和经济发展产生了重大而深远的影响,必须引起高度重视,改革刻不容缓。为了应对乡镇政府权力被不断弱化的局面,各地出台了一系列强镇扩权的政策与措施。本文从广东省中心镇强镇扩权改革实践出发,通过自身地实践与经历、对相关地区实地调查、资料积累和分析,把珠海市三灶镇作为模块,对强镇扩权进行实证研究。文中首先对强镇扩权的相关概念进行了界定,并阐述了强镇扩权的理论基础,根据国内外的实践情况,总结出改革的启示,为研究三灶镇的改革奠定了良好的基础。本文总结出强镇扩权的三个动因:职责与职权不统一、财权与事权不对称和区镇之间的机构设置不科学。并进一步分析出强镇扩权改革所遇到的体制障碍,指出现行的行政体制、财政体制和考核体制都会阻碍镇政府的发展。文中针对各种体制障碍,提出了四种推进强镇扩权的策略,即合理规划、科学管理;集聚产业、强化特色;多元融资、完善功能和充实权限、优化资源。根据相关理论和强镇扩权的实践启示,在文中对强镇扩权中政府的职能定位进行了探索,提出强镇扩权中政府应具备经济发展、社会管理、公共服务、市场监督四大职能,并对如何更好的实现这些职能进行了研究,提出了改革行政体制、创新财政体制和完善对乡镇政府的考核机制三大改革的思路。
文中利用实际数据与事例,将三灶镇强镇扩权改革前与改革后的财权,事权,经济、环境进行对比,得出改革的成效所在,并证明了强镇扩权的可操作性和积极意义。
As an important medium of new socialist countryside construction, township government is responsible to provide public goods,services and infrastructure for rural areas. However, the oppression mode in current management system leads township government to assume excessive right of personnel. With declining right of finance, the role township government plays in the construction of rural infrastructure has become a hot topic in the study of issues of agriculture, farmer and rural area.
Based on the definitions of central town and power expansion of strong town, this thesis illustrates both the motivation and feasibility of power expansion with the analysis of theory and presentation of practical application. Through case of Sanzao town of Zhuhai, the thesis explains the barriers to power expansion of strong town, the reform ideas and the relevant policy recommendations. It is believed that power expansion of strong town is an effective solution to the current problems of agriculture, farmer and rural area. It could not only deal with the embarrassing situation where a lower right of finance and a higher right of personnel go together, but also offer financial support for better development of rural areas, so as to provide corresponding basis for the township government to serve its function of social management and plan overall the development of three main industries.
The thesis is divided into six parts as the following:
Part One: Introduction. This part introduces research background, purpose and significance, clarifies the latest studies of power expansion of strong town in the literature review, and puts forward research ideas, methodology and theoretical framework of this thesis.
Part Two: This part elaborates specifically the theoretical basis of power expansion reform and its practical experience at present. First of all, power expansion of strong town is explained and concepts related to it are defined. Next, on such a basis, three theoretical foundations of power expansion are laid: the theories of flattening organization, government governance and decentralization, and the administration principles in the development of urban and rural areas since the founding of China. Finally, it summarizes the implication of power expansion practice in China.
Part Three: Making use of the known data and theory, this part analyzes the necessity and feasibility of power expansion of strong town. It concludes that the power expansion is caused by four aspects: the inconsistency between responsibility and authority, the unbalance between right of finance and right of personnel, the irrationality of structure of government set between counties (districts) and towns, and unreasonable construction plan for central town. Meanwhile, the system barriers of administration, finance and assessment to power expansion are pointed out based on its practice. According to the feasibility and motivation of power expansion, three major strategies to promote the power expansion are presented. They are decentralization of central town, scientific planning of its size and characteristic construction of its industries.
Part Four: Covering five areas, this parts studies government function orientation and reform ideas during the process of power expansion of strong town. It suggests the government function orientation implement from the aspects of economic development, social management, public service and market supervision, and brings forward ideas about the reform of government in the power expansion, which include reform of administrative system, innovation of financial system and improvement of assessment system of township government。
Part Five: This part carries out empirical research on power expansion of strong town with the case of Sanzao town of Zhuhai. It first introduces the basic information of Sanzao town. Then comparison is drawn in the aspects of right of finance, right of personnel, economy and environment before and after the reform to prove the feasibility and positive significance of power expansion of strong town.
Part Six: This part concludes all the efforts and major opinions of this thesis, and proposes suggestions for further studies.
文中利用实际数据与事例,将三灶镇强镇扩权改革前与改革后的财权,事权,经济、环境进行对比,得出改革的成效所在,并证明了强镇扩权的可操作性和积极意义。
As an important medium of new socialist countryside construction, township government is responsible to provide public goods,services and infrastructure for rural areas. However, the oppression mode in current management system leads township government to assume excessive right of personnel. With declining right of finance, the role township government plays in the construction of rural infrastructure has become a hot topic in the study of issues of agriculture, farmer and rural area.
Based on the definitions of central town and power expansion of strong town, this thesis illustrates both the motivation and feasibility of power expansion with the analysis of theory and presentation of practical application. Through case of Sanzao town of Zhuhai, the thesis explains the barriers to power expansion of strong town, the reform ideas and the relevant policy recommendations. It is believed that power expansion of strong town is an effective solution to the current problems of agriculture, farmer and rural area. It could not only deal with the embarrassing situation where a lower right of finance and a higher right of personnel go together, but also offer financial support for better development of rural areas, so as to provide corresponding basis for the township government to serve its function of social management and plan overall the development of three main industries.
The thesis is divided into six parts as the following:
Part One: Introduction. This part introduces research background, purpose and significance, clarifies the latest studies of power expansion of strong town in the literature review, and puts forward research ideas, methodology and theoretical framework of this thesis.
Part Two: This part elaborates specifically the theoretical basis of power expansion reform and its practical experience at present. First of all, power expansion of strong town is explained and concepts related to it are defined. Next, on such a basis, three theoretical foundations of power expansion are laid: the theories of flattening organization, government governance and decentralization, and the administration principles in the development of urban and rural areas since the founding of China. Finally, it summarizes the implication of power expansion practice in China.
Part Three: Making use of the known data and theory, this part analyzes the necessity and feasibility of power expansion of strong town. It concludes that the power expansion is caused by four aspects: the inconsistency between responsibility and authority, the unbalance between right of finance and right of personnel, the irrationality of structure of government set between counties (districts) and towns, and unreasonable construction plan for central town. Meanwhile, the system barriers of administration, finance and assessment to power expansion are pointed out based on its practice. According to the feasibility and motivation of power expansion, three major strategies to promote the power expansion are presented. They are decentralization of central town, scientific planning of its size and characteristic construction of its industries.
Part Four: Covering five areas, this parts studies government function orientation and reform ideas during the process of power expansion of strong town. It suggests the government function orientation implement from the aspects of economic development, social management, public service and market supervision, and brings forward ideas about the reform of government in the power expansion, which include reform of administrative system, innovation of financial system and improvement of assessment system of township government。
Part Five: This part carries out empirical research on power expansion of strong town with the case of Sanzao town of Zhuhai. It first introduces the basic information of Sanzao town. Then comparison is drawn in the aspects of right of finance, right of personnel, economy and environment before and after the reform to prove the feasibility and positive significance of power expansion of strong town.
Part Six: This part concludes all the efforts and major opinions of this thesis, and proposes suggestions for further studies.
引文
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【2】徐勇.精乡扩镇,乡派镇治:乡级治理体制的结构性改革[J].公共行政,2004,(5):20
【3】金太军,汪旻艳.现行省级行政区划改革的系统思考[J].公共行政,2006,(1):10-15
【1】姚莉.论乡镇政府的社会治理能力:现状、改革及启示——以浙江“强镇扩权”为例[J],经济与社会发展, 2008(10).
【2】陈剩勇、张丙宣.强镇扩权:浙江省近年来小城镇政府管理体制改革的实践[J]浙江学刊, 2007年(6).
【3】http://www.raresd.com/raresdin/brownew.asp?n_ID=5590.
【4】姚莉.财权与事权配置视角下的乡镇改革趋势——兼评“乡财县管”与“强镇扩权”[J] ,经济与社会发展, 2008
【1】陈剩勇、张丙宣.强镇扩权:浙江省近年来小城镇政府管理体制改革的实践[J]浙江学刊, 2007年(6).
【2】史卫东、赵春.关于“强镇扩权”的理性思考[J],小城镇建设,2009年(1)
【3】王勇.关于扩权强镇建城的几点思考[J],宁小通讯, 2009(6).
【4】王琳.强镇扩权:现实需求与发展挑战[J].浙江经济, 2007(14).
【5】魏涛.强镇扩权:一个张镇改革模式的研究样本[J].湖南工程学院学报, 2007(1).
【1】张占斌.市管县体制25年观察[M],决策2008年(1),第42页。
【1】金太军、施从美,乡村关系与村民自治[J],广东人民出版社,2002.
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【1】姚莉.论乡镇政府的社会治理能力:现状、改革及启示——以浙江“强镇扩权”为例[J],经济与社会发展, 2008(10).
【2】陈剩勇、张丙宣.强镇扩权:浙江省近年来小城镇政府管理体制改革的实践[J]浙江学刊, 2007年(6).
【3】http://www.raresd.com/raresdin/brownew.asp?n_ID=5590.
【4】姚莉.财权与事权配置视角下的乡镇改革趋势——兼评“乡财县管”与“强镇扩权”[J] ,经济与社会发展, 2008
【1】陈剩勇、张丙宣.强镇扩权:浙江省近年来小城镇政府管理体制改革的实践[J]浙江学刊, 2007年(6).
【2】史卫东、赵春.关于“强镇扩权”的理性思考[J],小城镇建设,2009年(1)
【3】王勇.关于扩权强镇建城的几点思考[J],宁小通讯, 2009(6).
【4】王琳.强镇扩权:现实需求与发展挑战[J].浙江经济, 2007(14).
【5】魏涛.强镇扩权:一个张镇改革模式的研究样本[J].湖南工程学院学报, 2007(1).
【1】张占斌.市管县体制25年观察[M],决策2008年(1),第42页。
【1】金太军、施从美,乡村关系与村民自治[J],广东人民出版社,2002.
[1] Azam,kousar J. Federalism and Good Governance:Issues Across Cultures[M],New Delhi:South Asian Publishers,1998.
[2]Falk,Richard,.Governance without Government: Order and Change in world Polities(Book Review),he American Political Science Review,1993.Vol.87,Issue2.
[3]黄硕:平衡地区发展,广东打造中心镇[J].财经时报,2006年6月10日.
[4]彭晓沙:关于广东省城镇化及小城镇发展的考察报告[EB/OL] .城镇化动态(网络版),http://www.csup.gov.cn/xhpaper/article.asp?id=22&sp=next&classid=4.
[5]谢宝富.当代中国政府体制论略[M].北京:北京大学出版社,2005.
[6]朔忠东.变革社会中的乡镇体制:现状与变革[J].社会科学家,2005(3).
[7]李昌平.董磊明:税费改革背景下的乡镇体制研究[M].武汉:湖北人民出版社,2004.
[8]俞可平.治理与善治[M].北京:社会科学文献出版社,2000.
[9]马戎.中国乡镇组织变迁研究[M].北京:华夏出版社,2000.
[10]刁田丁.中国机构改革的理论与实践[M].北京:法律出版社,1999.
[11]荣敬本.压力型体制向民主合作体制的转变[M].北京:中央编译出版社,1998.
[12]刘智峰.中国政治体制改革问题报告[M].北京:中国电影出版社,1999.
[13]罗伟雄,刘宗贤.发达国家农村基层行政管理制度[M].北京:时事出版社,2001.
[14]阎林.政府组织结构调整与经济发展[M].北京:社会科学文献出版社,1999.
[15]刘佐.中国税制概览[M].北京:经济科学出版社,2000.
[16]胡书东.经济发展中的中央与地方关系[M].上海:上海三联书店,2001.
[17]孙开.政府间财政关系研究[M].大连:东北财经大学出版社,1994.
[18]寇铁军.中央与地方财政关系研究[M].大连:东北财经大学出版社,1996.
[19]薄贵利.中央与地方关系研究[M].长春:吉林大学出版社,1991.
[20]薄贵利.集权、分权与国家兴衰[M].北京:经济科学出版社,2001.
[21]林尚立.国内政府间关系[M].杭州:浙江人民出版社,1999.
[22]赵永茂.中央与地方权限划分的理论与实际[M].台湾:翰芦图书出版有限公司,1998.
[23]张占斌.中国市管县体制实施25年:强县扩权陷困局[M].决策2008.
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