强镇扩权:城市基层治理创新路径的生成与诠释

Authority Enlargement at Township Level:Generation and Interpretation of the Urban Grassroots Governance Innovation

"强镇扩权"旨在通过权力下放、委托执法等方式赋予经济发达乡镇部分县(市)级经济社会管理权限来解决基层治理中的"责权倒挂"问题。自下而上的现实管理需求与自上而下的行政推动构成此项改革的内源和外源动力,客观上有利于增强基层政府自主性和推进基层治理差异化。但此项改革尚未涉及对现有行政区划层级划分和政府间职权关系的根本性调整,职权关系的变更更多取决于上级政府对基层治理实际的主观认定而非规范化的法治分权,难以避免权力下放后的周期性收放集分循环、权力规制体系缺失、行政分权与社会分权的非同步以及基层治理重"管制"轻"服务"等一系列内生困境,现有制度设计存在进一步优化的空间。

The reform of authority enlargement at township level aims at solving problem of ＂rights and responsibilities upside down＂ in the grassroots governance through the method of decentralization, commissioned law enforcement etc. Bottom-up administrative reali- ties require top-down promoting composed of endogenous and exogenous force of the reform. It helps to strengthen grass-roots govern- ment autonomy and promote grass-roots governance differentiation. But this has not been involved in the reform of the fundamental rela- tionship adjustment between governments and administrative divisions. Division of powers depend more on the higher levels of government subjective judgments based on actual grassroots governance rather than the standardized rule of the separation . It＇s hard to avoid periodic retractable centralization and decentralization, because lack of power regulation system, non-synchronous development of administrative decentralization and social decentralization and grassroots governance of ＂control＂ not ＂service＂ and a se- ries of endogenous dilemma. It needs to further optimize the existing system design.