政策執(zhí)行中鄉(xiāng)鎮(zhèn)政府的自主性研究
發(fā)布時(shí)間：2019-06-08 19:10
【摘要】：隨著行政分權(quán)體制與財(cái)稅體制的改革,地方政府在管理社會公共事務(wù)上的權(quán)力也逐漸擴(kuò)大,其自主性空間也日益擴(kuò)大。一方面,地方政府自主權(quán)的擴(kuò)大確實(shí)能夠充分刺激地方政府的積極性與能動(dòng)性,促進(jìn)地方經(jīng)濟(jì)增長與地方其他事務(wù)的發(fā)展;另一方面,地方政府自主權(quán)的擴(kuò)大使地方政府發(fā)展成為具有自主意志的利益主體,容易異化為損害公共利益的力量。地方政府的行為活動(dòng)特別是鄉(xiāng)鎮(zhèn)政府的行為活動(dòng)集中表現(xiàn)為公共政策的執(zhí)行,鄉(xiāng)鎮(zhèn)政府處于公共政策執(zhí)行鏈條的末端,幾乎沒有什么政策決策的權(quán)力,然而由于政策執(zhí)行鏈條漫長帶來的政策傳遞問題、政策環(huán)境無時(shí)不刻處于變動(dòng)之中,政策目標(biāo)的完美實(shí)現(xiàn)在一定程度上依賴于鄉(xiāng)鎮(zhèn)政府政策執(zhí)行的有效性與回應(yīng)性。因此,政策執(zhí)行中鄉(xiāng)鎮(zhèn)政府的問題就是其自主性的約束與激勵(lì)問題。本文想要探討的問題是在具體的政策執(zhí)行過程中,鄉(xiāng)鎮(zhèn)政府的自主性空間究竟有多大?其約束機(jī)制與激勵(lì)機(jī)制是什么,即上級政府對鄉(xiāng)鎮(zhèn)政府的自主性采取了何種約束措施和激勵(lì)措施?是什么原因使得出現(xiàn)這樣的約束機(jī)制和激勵(lì)機(jī)制?有什么地方可以改進(jìn)的?本文主要在考察政策執(zhí)行和地方政府自主性的相關(guān)研究文獻(xiàn)的基礎(chǔ)上,從政策執(zhí)行者的角度來看,認(rèn)為政策執(zhí)行至少包括三個(gè)方面的內(nèi)容:第一,未出現(xiàn)預(yù)見之外的情況,誠實(shí)地執(zhí)行政策;第二,出現(xiàn)預(yù)見之外的情況,轉(zhuǎn)化為問題的分析者,界定問題并解決問題;第三,政策執(zhí)行者缺乏必要的知識與能力時(shí),確保"信息向上"流動(dòng)。將地方政府自主性界定為"擁有相對獨(dú)立利益結(jié)構(gòu)的地方政府,按照自己的意志自我設(shè)計(jì)、自我管理、自我發(fā)展的能力及其活動(dòng)",具有"獨(dú)立性"和"創(chuàng)新性"的雙重特征。文章第三部分通過對人的本質(zhì)分析,指出地方政府自主性具有"善"與"惡"二重性,政策執(zhí)行中的執(zhí)行主體問題就是其自主性的約束與激勵(lì)問題,并得出這樣一個(gè)結(jié)論:政策執(zhí)行中鄉(xiāng)鎮(zhèn)政府自主性的應(yīng)然邏輯就是強(qiáng)約束與強(qiáng)激勵(lì),即強(qiáng)約束能夠有效遏制鄉(xiāng)鎮(zhèn)政府自主性"惡"的一面,強(qiáng)激勵(lì)能夠有效張揚(yáng)鄉(xiāng)鎮(zhèn)政府自主性"善"的一面,強(qiáng)約束與強(qiáng)激勵(lì)的合力能促進(jìn)政策目標(biāo)的有效實(shí)現(xiàn)。文章第四部分則以新村基礎(chǔ)設(shè)施建設(shè)為例,分析政策執(zhí)行中鄉(xiāng)鎮(zhèn)政府自主性的約束機(jī)制與激勵(lì)機(jī)制,認(rèn)為鄉(xiāng)鎮(zhèn)政府的自主性空間還是比較大的,對其的約束機(jī)制主要從橫向和縱向兩個(gè)維度來考察,橫向約束機(jī)制包括召開村民代表大會、成立監(jiān)督委員會以及實(shí)行公告公示制度。縱向約束機(jī)制包括財(cái)政限制、明確完成時(shí)限和任務(wù)指標(biāo)、考核驗(yàn)收三個(gè)方面;對其的激勵(lì)機(jī)制則主要包括以獎(jiǎng)代補(bǔ)和資金分配承諾、表彰獎(jiǎng)勵(lì)兩個(gè)方面。總體上,鄉(xiāng)鎮(zhèn)政府自主性的約束機(jī)制與激勵(lì)機(jī)制存在"約束形式多樣、約束效果不強(qiáng)"、"激勵(lì)途徑偏少、激勵(lì)效果欠佳"的問題。第五部分則在政策執(zhí)行中鄉(xiāng)鎮(zhèn)政府自主性的現(xiàn)狀闡釋分析的基礎(chǔ)上,提出相關(guān)建議。在約束機(jī)制上:第一,基于地區(qū)的共性,盡量縮減政策執(zhí)行主體的自主性空間,建立起"原則性要求—強(qiáng)制性規(guī)定—禁止性規(guī)定"三位一體的約束機(jī)制;第二,從政策執(zhí)行時(shí)期上,建立起執(zhí)行前期方案審核、中期檢查、后期考核驗(yàn)收的約束機(jī)制;第三,從政策執(zhí)行內(nèi)容上,建立其財(cái)政控制與事務(wù)執(zhí)行質(zhì)量并重的約束機(jī)制。在激勵(lì)機(jī)制上:第一,樹立對具體政策執(zhí)行的激勵(lì)理念,完善對成員個(gè)體的激勵(lì)機(jī)制;第二,在政治激勵(lì)上,建立職務(wù)晉升機(jī)制與專業(yè)人才的層級流動(dòng)機(jī)制;第三,在經(jīng)濟(jì)激勵(lì)上,可以引入企業(yè)激勵(lì)手段,給予一定的物質(zhì)激勵(lì)。
[Abstract]:With the reform of the administrative decentralization system and the fiscal and taxation system, the power of the local government to manage the public affairs of the society is also gradually expanded, and the autonomous space of the local government is also expanding. On the one hand, the expansion of local government's autonomy can fully stimulate the initiative and initiative of local governments, and promote the development of local economic growth and local other affairs; on the other hand, the expansion of local government ownership has made local government develop into the main body of interest with independent will, It is easy to dissimilate to the power of harm to the public interest. The activities of the local government, in particular the government's activities, are focused on the implementation of the public policy. The government is at the end of the public policy implementation chain, and has little power to make policy decisions. However, the policy implementation chain is a long-term policy delivery problem. The perfect realization of the policy objective depends to some extent on the effectiveness and responsiveness of the implementation of the government's policy. Therefore, the problem of the government in the implementation of the policy is the restraint and incentive problem of its autonomy. What is the problem of the government's autonomy in the process of specific policy implementation? What is the restraint mechanism and the incentive mechanism, that is, what kind of restraint measures and incentive measures are taken by the higher-level government to the government's autonomy? What causes such restraint mechanisms and incentives? Where can I improve it? On the basis of examining the relevant research literature of policy enforcement and local government autonomy, this paper, from the point of view of the policy implementer, is of the opinion that the policy implementation includes at least three aspects: the first, the unforeseeable circumstances and the honest implementation of the policy; and secondly, In addition to the unforeseen circumstances, the author of the problem is transformed into a problem and the problem is defined and the problem is solved; and thirdly, when the policy executor lacks the necessary knowledge and capability, the "information up" is ensured to flow. The local government's autonomy is defined as the "Local governments with relatively independent interests, self-designed, self-managing, self-developed, and their activities in accordance with their will" and has the dual characteristics of the "independence" and the "innovativeness". The third part of the article, through the analysis of the human nature, points out that the local government's autonomy has the "good" and the "evil" duality, and the main problem in the implementation of the policy is the restraint and the incentive problem of its autonomy, and the conclusion is drawn: The independent logic of the government's autonomy in the implementation of the policy is the strong restriction and strong incentive, that is, the strong restraint can effectively restrain the one side of the autonomous "evil" of the government, and the strong incentive can effectively publicize the one side of the autonomous "good" of the government. The combination of strong and strong incentive can promote the effective realization of policy objectives. The fourth part of the article, taking the construction of the new village infrastructure as an example, analyzes the restraint mechanism and the incentive mechanism of the government's autonomy in the implementation of the policy. The lateral restraint mechanism includes the holding of the villagers' congress, the establishment of the supervision committee and the implementation of the public announcement system. The mechanism of the longitudinal restraint includes the financial limitation, the clear completion time limit and the task index, the examination and acceptance of the three aspects, and the incentive mechanism to the system mainly includes the commitment of the award and the fund distribution, and the recognition of the two aspects. In general, there are the "The constraints are diverse, and the constraint effect is not strong." and the "less incentive means and poor incentive effect" of the restraint mechanism and the incentive mechanism of the government's autonomy. The fifth part, based on the analysis of the present state of government autonomy in the implementation of the policy, puts forward relevant suggestions. in that constraint mechanism, the first, base on the commonness of the region, reduce the autonomous space of the main body of the policy as much as possible, establish a three-in-one constraint mechanism of the mandatory provision of the principle of principle, and the second, from the time of policy execution, establish a pre-implementation plan review and a medium-term check, The third part, on the content of the policy implementation, establishes the constraint mechanism of the financial control and the execution quality of the transaction. On the incentive mechanism, the first is to set up the incentive concept for the implementation of the specific policies and to improve the incentive mechanism for the individual members; secondly, on the political incentive, the mechanism of post promotion and the level flow mechanism of the professionals should be established; and thirdly, on the economic incentive, the enterprise incentive means can be introduced. A certain material stimulus is given.
【學(xué)位授予單位】：南京大學(xué)
【學(xué)位級別】：碩士
【學(xué)位授予年份】：2017
【分類號】：D63
本文編號：2495505
[Abstract]:With the reform of the administrative decentralization system and the fiscal and taxation system, the power of the local government to manage the public affairs of the society is also gradually expanded, and the autonomous space of the local government is also expanding. On the one hand, the expansion of local government's autonomy can fully stimulate the initiative and initiative of local governments, and promote the development of local economic growth and local other affairs; on the other hand, the expansion of local government ownership has made local government develop into the main body of interest with independent will, It is easy to dissimilate to the power of harm to the public interest. The activities of the local government, in particular the government's activities, are focused on the implementation of the public policy. The government is at the end of the public policy implementation chain, and has little power to make policy decisions. However, the policy implementation chain is a long-term policy delivery problem. The perfect realization of the policy objective depends to some extent on the effectiveness and responsiveness of the implementation of the government's policy. Therefore, the problem of the government in the implementation of the policy is the restraint and incentive problem of its autonomy. What is the problem of the government's autonomy in the process of specific policy implementation? What is the restraint mechanism and the incentive mechanism, that is, what kind of restraint measures and incentive measures are taken by the higher-level government to the government's autonomy? What causes such restraint mechanisms and incentives? Where can I improve it? On the basis of examining the relevant research literature of policy enforcement and local government autonomy, this paper, from the point of view of the policy implementer, is of the opinion that the policy implementation includes at least three aspects: the first, the unforeseeable circumstances and the honest implementation of the policy; and secondly, In addition to the unforeseen circumstances, the author of the problem is transformed into a problem and the problem is defined and the problem is solved; and thirdly, when the policy executor lacks the necessary knowledge and capability, the "information up" is ensured to flow. The local government's autonomy is defined as the "Local governments with relatively independent interests, self-designed, self-managing, self-developed, and their activities in accordance with their will" and has the dual characteristics of the "independence" and the "innovativeness". The third part of the article, through the analysis of the human nature, points out that the local government's autonomy has the "good" and the "evil" duality, and the main problem in the implementation of the policy is the restraint and the incentive problem of its autonomy, and the conclusion is drawn: The independent logic of the government's autonomy in the implementation of the policy is the strong restriction and strong incentive, that is, the strong restraint can effectively restrain the one side of the autonomous "evil" of the government, and the strong incentive can effectively publicize the one side of the autonomous "good" of the government. The combination of strong and strong incentive can promote the effective realization of policy objectives. The fourth part of the article, taking the construction of the new village infrastructure as an example, analyzes the restraint mechanism and the incentive mechanism of the government's autonomy in the implementation of the policy. The lateral restraint mechanism includes the holding of the villagers' congress, the establishment of the supervision committee and the implementation of the public announcement system. The mechanism of the longitudinal restraint includes the financial limitation, the clear completion time limit and the task index, the examination and acceptance of the three aspects, and the incentive mechanism to the system mainly includes the commitment of the award and the fund distribution, and the recognition of the two aspects. In general, there are the "The constraints are diverse, and the constraint effect is not strong." and the "less incentive means and poor incentive effect" of the restraint mechanism and the incentive mechanism of the government's autonomy. The fifth part, based on the analysis of the present state of government autonomy in the implementation of the policy, puts forward relevant suggestions. in that constraint mechanism, the first, base on the commonness of the region, reduce the autonomous space of the main body of the policy as much as possible, establish a three-in-one constraint mechanism of the mandatory provision of the principle of principle, and the second, from the time of policy execution, establish a pre-implementation plan review and a medium-term check, The third part, on the content of the policy implementation, establishes the constraint mechanism of the financial control and the execution quality of the transaction. On the incentive mechanism, the first is to set up the incentive concept for the implementation of the specific policies and to improve the incentive mechanism for the individual members; secondly, on the political incentive, the mechanism of post promotion and the level flow mechanism of the professionals should be established; and thirdly, on the economic incentive, the enterprise incentive means can be introduced. A certain material stimulus is given.
【學(xué)位授予單位】：南京大學(xué)
【學(xué)位級別】：碩士
【學(xué)位授予年份】：2017
【分類號】：D63
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