在“科层制”和“契约制”之间:地方编外人员的定位

Between the “Bureaucratic System” and the “Indenture System”: Positioning the Local Staff outside the Officially Budgeted Posts

当前各级地方政府都存在着大量的编外人员,这是一个跨越政府、市场和社会边界的问题,更是行政体制改革、事业单位改革和社会组织改革的共同问题。采用案例分析的研究方法,检视了中部某区编外人员与编内人员的现实差异。在此基础上,提出:编外雇佣制是科层制—契约制谱系中的一种组织形式,其行为逻辑和运行机制兼具科层制和契约制的部分特征;编外人员是"政府中,体制外"灵活可控的公共事务执行者,其存在为地方政府的人事制度增加了弹性,使地方政府可以应对社会转型期公共事务剧增和编制控制之间的冲突。

Currently the local governments at all levels have a large number of staff outside the officially bud-geted posts, which is not only a problem crossing the boundaries among the government, the market and the soci-ety, but more a common problem of the reform of administrative system, the reform of public institution, and thereform of social organization. According to the research method of case study, this article reviews a real differ-ence between the staffs outside and in the officially budgeted posts in the central region of China, on the basis ofwhich this article proposes that the employment system outside the officially budgeted posts is an organizationalform in the pedigree of the bureaucratic-indenture system, of which the action logic and operating mechanismcharacterize both the bureaucratic system and the indenture system partially; the staff outside the officially bud-geted posts is a flexible and controllable public affairs executor who is＂in the government but outside the offi-cially budgeted posts＂, whose existence has increased the flexibility for the personnel system of local govern-ment and can enable local government to cope with the conflict between the surge in public affairs and the con-trol of the officially budgeted posts in the period of social transition.