基于变革管理视角对三十年来机构改革的审视

An Examination of Governmental Institution Reform during the Last Thirty Years from the Change of Management Perspective

党的十八届三中全会强调要"更加注重改革的系统性、整体性、协同性",并决定成立全面深化改革领导小组,负责改革的总体设计、统筹协调、整体推进、督促落实。这意味着变革管理被提上重要议事日程。从变革管理角度系统梳理和审视改革开放以来国务院七轮机构改革历程,国务院机构设置变革呈现出明显的渐进和稳健特征,职能转变是历次改革的核心和亮点。政府职能转变呈现出明显的两段论特色:第一阶段的重点是政府经济管理职能的转变;第二阶段的重点是加强和改善宏观调控,更加注重社会管理和公共服务职能。但就方案设计而言,近10年来有关职能转变的目标和措施等具体性方面明显不足,具体措施及其成效与三轮机构改革方案之间的关系难以确立。因此,"机构改革是否也需要改革"成为新的实践命题,需要从战略定位、推进方式、公共责任、总体设计和精细化过程管理等方面进行思考。

The Third Plenary Session of the 18 th CPC Central Committee stressed 'giving more attention to implementing systematic,integrated and coordinated reforms,'and decided to establish a leading team to be in charge of overall planning,balanced coordination,all-round progress,and supervision and implementation,with a view to the all-round deepening of reform.This implies that change management is high on the agenda.The course of the State Council's seven rounds of reform of governmental institutions since reform and opening up,organized and scrutinized from the point of view of change management,has been marked by gradual progress and robustness,with the transformation of functions as the key point at the heart of the process.This transformation obviously involves two phases:the first phase emphasized the transformation of the government's economic management functions,while the second stresses and improves macro-level regulation and control,giving more attention to social management and public service functions.With respect to the design of the plan,however,there is a clear deficiency in the goals set and measures taken in the transformation of functions over the past decade.It is difficult to establish the relationship between particular measures and their effects on the one hand and the design of the three rounds of institutional reform on the other.Therefore,the question of 'whether institutional reform itself needs reforming'has become a new proposition for our practice,one that needs to be considered from such aspects as strategic orientation,means of progress,public responsibilities,and overall planning and detailed process management.