大部制的权力结构:机构合并与分立相融合的内在机理研究

Power Structure of the Giant Department System: On the Inherent Integrated Mechanism of Department and Separate Agencies

国外的大部制基于市场化、参与性、独立性、官僚制等四种不同的原则与逻辑,在大部门内外成立了具有一定自主权的内设部门或分立机构,形成了四种不同的权力结构形态。大体上可以将它们看作是决策权和执行权相对分开的权力结构。四种权力结构的共同特征和精髓在于"集中的决策控制权"与"分散的执行自主权"的相互作用,并且体现着机构合并与分立相融合的内在机理。在比较的视野下,我国的政府部门的机构形态与国外具有相似的分散性,而权力结构与国外具有较大差异,体现为"决策集中控制权"与"执行自主权"的双重缺失。在当前的权力结构形态下,我国政府部门合并产生的问题和困境需要权力结构变革来加以缓解。在此基础上,本文为中国大部制改革提出了相关建议。

There are four types of power structure in foreign giant department system, which can be largely recognized as the separated structure of policy-making and implementation, as a result of some internal sectors and separate agencies, which owned certain authority and was constructed based on four kinds of principle and logic—marketization, participation, independence and bureaucracy. The common feature and essence of these four types of power structure is the interaction between ‘centralized decision-making control'and‘decentralized executive autonomy’, which reflects the inherent integrated mechanism of department and separate agencies. On a comparative perspective, the dispersion of china's department and agency is similar with foreign, but the power structure of them, which can be characterized as the double absence both in ‘centralized decision-making control' and ‘executive autonomy', is largely different from foreign. The reform of power structure is needed by issues and dilemmas emerged in china's department merger. This paper can provide some advice for china's giant department system reform based on these studies.