分权、争功与避责：简政放权改革风险的生成及消减

Decentralize, Power Struggle and Avoid Responsibility:Generation and Mitigation of the Risk of Decentralization Reform

对最差情形的风险思考将有利于体制改革的系统性思维生成,简政放权改革所强调的"管放结合"便是系统性思维的体现。在分权改革背景之下,官僚理性运作可能引致改革实践背离改革应然运行逻辑,进而产生风险扭曲及其消减问题。以"社会风险预期"和"权力结构特征"为维度将风险规制形态进行类型划分,分权改革进程将触发不同类型体制间的动态转换,而官僚理性运作将利用并形塑体制形态转换,由此产生的争功、避责行为将打破府际纵向权责平衡,阻滞管放结合的分权应然运作逻辑,进而导致风险与责任在分权改革中未被有效匹配并呈现出风险扭曲现象。通过对食品安全生产审批放权改革案例的分析,及检验分析框架对争功效应与避责效应的理论假定可知,分权改革中监督评估分权改革将是破解风险规制领域"放收循环"周期律的重要路径。

It's beneficial for generating systemic thinking of system reform to think over worst-case risk, while'delegate powers while improving regulation', strengthened by decentralization reform,just reflects the systemic thinking. Under the background of decentralization reform, rational bureaucratic operation maybe cause the practice of reform to departure from run logic that reform ought tobe, furthermore produce the distortions and mitigation of the risk. If we classify the risk regulationform with the dimensions'social risk expectations'and'structural characteristics of power', we canfind that decentralization reform process will trigger dynamic conversion among different types of institutions, while rational bureaucratic operation will use and shape the conversion of institutions form.The resulting behavior of power struggling and avoiding responsibility will break intergovernmental longitudinal mandate balance, hinder the run logic that 'delegate powers while improving regulation'ought to be, and induce that risks and liabilities are not effectively matched in the decentralization reform and distortion of the risk occurs. Through analyzing of the case of decentralization reform offood production safety approval, and testing analysis framework's theory assumes about power struggling effect and avoiding responsibility effect, we can understand that decentralization reform of monitoring and evaluation will be the important way to crack periodic law of'cycle of recovering and decentralization'in the field of risk regulation.