自治州及其辖区行政体制改革的困境与创新

The Dilemma and Innovation of the Reform of the Administrative System in the Autonomous Prefecture

自治州作为我国民族自治地方的实现形式和一级地方政府,其现行行政体制不能完全适应民族地区经济社会和城市化发展的客观要求。目前,由于存在着侵害自治权的隐忧,自治州辖县、市至今未推行"强县扩权"和"省直管县"改革,原因在于民族区域自治的实现形式与自治州政府的纵向结构制约着自治州减少行政层级和行政区划调整的改革。当前自治州行政体制改革的关键环节是优化自治州的行政区划。具有较强的现实性与可行性的改革方案,是将自治州辖部分县、市改为州辖区,或是将自治州改为市,并通过立法解释明确自治州撤州建市后的法律地位。结合以上策略,各自治州可根据本地区的实际情况开展制度创新和创造性实践。

The Autonomous prefecture is not only a kind of Chinese local governments,but also the realization form of Chinese ethnic autonomy.However,its current administration system can not completely adapt to the requirements of development of the economy,society and urbanization in ethnic regions.Because of concerns about invading the autonomous right in those areas,the relative reforms,such as 'strong county and expanding power','province governing county',and so on,have not been undertaken among counties and cities under the jurisdiction of the autonomous prefecture.The realization forms of the ethnic autonomy and the vertical relationship in the Autonomous Prefecture restrict the decrease of administrative levels and the adjustment of administrative divisions.Optimization of administrative divisions is critical for the reform of the administrative system of the autonomous prefecture.In current stage,it is realistic and feasible that the replacement of some counties and cities with districts in the autonomous prefecture or changing autonomous prefectures for cities,as well as nailing down the legal status of the new kind of autonomous prefectures by means of legislative interpretations. Based on those thoughts,institutional innovations and creative practices can be carried out according to actual conditions in different autonomous prefectures.