新中国70年机关事务治理的制度变迁：一项历史制度主义的考察

The Institutional Changes of the Administrative Affairs Governance in the 70 Years since the Founding of New China:An Investigation of Historical Institutionalism

机关事务治理制度是国家治理体系的一项重要内容,有机融汇于新中国成立70年来的历史叙事之中。如何理解我国机关事务治理制度的历史变迁,是影响国家治理体系和治理能力现代化的一个重要命题。我国的机关事务治理从以"后勤服务"为主要表现形态的传统机关事务管理向以"运行保障"为主要表现形态的现代机关事务治理转型,经历了雏形渐成、改革发展、深化改革三次重大的制度变迁。基于历史制度主义的分析范式,机关事务治理制度变迁过程中制度背景、政治变量、路径依赖和关键节点的"混合体"模式深刻影响着机关事务治理制度的变迁历程,国家治理范式下的政治、经济、文化、社会因素则是制度变迁的动力所在。展望未来,机关事务治理现代化要正视新时代赋予的新要求,加强制度创新消解路径依赖逆向张力,推进机关事务治理职能法定化,完善多元协同的机关事务治理模式,从而推进新时代机关事务工作高质量发展。

The governance system of admin istrative affairs is an important part of state governance system, and it is integrated into the historical narrative of the 70 years since the founding of New China. How to understand the historical changes of China’s administrative affairs governance system is an important proposition that affects the modernization of state governance system and governance capacity. China’s administrative affairs governance has transformed from traditional administrative affairs management characterized by "logistics service" to modern administrative affairs governance characterized by "operational guarantee". It has undergone three periods of major institutional changes: rudimentary formation, reform and development, and deepening reform. Based on the analysis paradigm of historical institutionalism, the "hybrid" model of institutional background, political variables, path dependence and key nodes in the process of institutional change of administrative affairs governance system profoundly affects the institutional evolution of the system. The political, economic, cultural, and social factors under the paradigm of state governance are the driving forces of institutional change. Looking forward to the future, the modernization of administrative affairs governance should face up to the new requirements imposed by the new era, strengthen institutional innovation, eliminate the reverse tension of path dependence, promote the legalization of the functions of administrative affairs governance, and improve the multi-coordinated governance model, so as to advance the high-quality development of administrative affairs governance in the new era.