从权力分权走向权利分权

From Separation of Power to Separation of Right

权力是政府运行的核心要素,行政权力的支配与使用是政府运作的核心内容。实施政府管理体制改革,其核心要务就是强化行政权力的合理划分与重新配置。当下,随着社会阶层的不断分化,调整利益分配格局的呼声日渐高涨,政府管理体制改革的社会命题又一次地提上日程。审视30多年来的改革实践可见,分权化改革乃我国政府管理改革之主线。期间,中央向地方的分权、党委向政府的分权、政府向部门的分权以及政府向社会的分权构成了我国政府分权化改革的四个维度。然而,中央向地方的分权、党委向政府的分权、政府向部门的分权是一种体制内的权力分权,其结果又导致了地方集权、党政集权和部门集权的出现。我们认为,要破解"三大集权"之难,不仅需要通过决策权、执行权和监督权的"行政三分制"来优化权力运行,更需要强化政府向社会的分权,从体制内的权力分权走向体制外的权利分权,真正实现政府、市场与社会的协同共治。

Power is a core element of the operation of government while the dominance and use of administrative power are the core contents of the operation of government. The key task for implementing the reform of government management system is to intensify the reasonable division and rearrangement of administrative power. With the continuous differentiation of social stratum,the call for readjusting the pattern of interest distribution is growing increasingly and the social thesis for the reform of government management system is again placed on the agenda. The reform for separation of power has been the mainline throughout the reform of China's government management system since reform and practice began over 30 years ago. During this period,the decentralization of authority from the central government to local governments,from the Party committee to the government and from the government to its subordinate sectors is a kind of in- system separation of power,the result of which has also led to centralization of power in local governments,Party and government organizations and government sectors. In our view,to solve the problem of the ' three centralizations',we not only need to optimize the operation of power under the ' system of administration authority shared by three elements',namely the decision- making power,executive power and supervisory power,but also need to intensify the decentralization of authority from the government to the society and the separation of power inside the system toward the separation of right outside the system to achieve the collaborative governance by the government,market and society.