从压力型体制到督办责任体制:中国国家现代化导向下政府运作模式的转型与机制创新

From Pressure System to Supervisory Responsibility System——Government Operation Model Transformation and Mechanism Innovation Oriented from Modernization in China

改革开放以来,当代中国以经济建设为中心的国家现代化发展模式助推中国地方政府间激烈的竞争格局和压力型体制的形成。进入21世纪特别是全面深化改革时期后,当代中国的发展环境、目标和任务都发生新的变化,政府运作模式开始从压力型体制向督办责任体制的转型进程。督办责任体制有其特有的内涵、特征、运作逻辑与运行流程。督办责任体制的运作逻辑主要体现为:首先,关涉上下级权力配置与权力行使这一核心问题,体现为上级权力对下级的压力传导;其次,与目标管理联系在一起,涉及总目标制定、目标分解、目标达成、目标控制和目标考核等一系列过程;再次,将政策决策与政策执行有机结合,强调高层的战略规划、中层的决策引导和基层的执行责任的有机统一;最后,构建激励与问责的双重保障机制,形成过程督办与结果奖惩相结合的全方位激励机制。督办责任体制更加强调中央意识与基层目标的上下贯通,战略决策与执行的有机匹配,执行者的责任分担与严苛问责,以及对执行者的有效激励。

Since the Reform and Opening, Chinese modernization development mode, which centering on the economic construction, has boosted the formation of the intense competition and the pressure system among local governments. In the 21st century, especially after the comprehensive deepening reform, changes regarding the development environment, objectives and tasks of contemporary China occurred . Therefore, to better achieve the strategic objectives of national development, it is necessary to transform from pressure system to supervisory responsibility system. Supervisory responsibility system has its unique operation logic： Firstly, it is related to the superior-subordinate power allocation and exercise, which embodies the pressure conduction from superior to subordinate bureaucracies; Secondly, it is linked with objective management and involves a series of processes of formulation, decomposition, achievement, control and assessment; Thirdly, policy decision should be properly integrated with policy implementation, emphasizing the responsibility unity of strategy planning at senior-level, combining in-process supervision and out-put rewards and penalties.