府际关系视角下大城市政府职责体系构建——基于《深化党和国家机构改革方案》的解读

A Study on the Construction of Governmental Responsibility System in Metropolitan Cities from the Perspective of Intergovernmental Relations

《深化党和国家机构改革方案》对政府职责体系构建进行了原则性设计:在逻辑层面突出"职责归类",在内容层面强化"统筹协同",在结构层面明确"府际差异"。在大城市这一场域中,以府际关系为观察视角,在市区关系上,区是城市公共事务管理压力的分担者、而非整体功能的分割者;在区区关系上,重在借助区际合作实现公共服务的有效供给;在区街关系上,派出机构的属性注定"指挥与服从"贯穿始终。由此可以形成三项基础性认识,其一是不必过分拘泥于关于职责同构的批判,其二是做大做强市辖区的改革理念可能存在偏差,其三是可以考虑以"公共服务供给者"替代"行政级别"作为权责配置依据。未来,应当立足职责归类,重点关注合理确权;立足统筹协同,突出党的全面领导、维护市级政府权威和强化区级政府间伙伴关系意识;立足府际差异,明确不同层级政府公共服务供给责任。

The Program for Deepening the Reform of the Party and the State Institutions focus on problem orienta- tion logically, overall coordination structurally, and local conditions on the content. From the perspective of intergovem- mental relations, the district is the shareholder of the management pressure of public affairs in the city, not segmenting its overall function on the relationship of the city and its districts. Making public services effectively supplied through coop- eration is the concentration on the relationship between different districts of the same city. The attributes of the dis- patched agencies are dictated to command and obey all the way through on the relationship of the district and the street. Therefore, three basic understandings can be reached： firstly, it is unnecessary to be excessively rigid about the critique of homogeneity of duties; secondly, it may be wrong to make municipal districts stronger; thirdly, it is worthwhile of re- placing ＂Administrative Level＂ with ＂Public Service Provider＂ as the standard of power and responsibility configuration. In future, it is needed to maintain the authority of the city and focus on the reasonable right, strengthen the Party＇s overall leadership, intergovernmental partner consciousness and cultivation of social strength, and implement different levels of government public service supply responsibility.