省直管县改革政策中的府际关系——基于22个省的改革文本分析

Intergovernmental Relations in Reform Policy of Direct Supervision of County:Based on Text Analysis on Reform of Direct Provincial Supervision of County in 22 Provinces

省直管县改革形式上表现为纵向层级体制变革,但实质上是省市县府际关系的调整与优化。基于府际关系视角,运用文本分析和比较分析方法,对2002-2016年22个省出台的129份省直管县改革相关政策文本进行比较分析发现,各省文本总体上都能涉及府际关系中的财政关系、权限下放关系、公共行政关系,但存在趋同性和省域特色不明显问题,且府际管理缺失,府际治理理念鲜见。作为导引、规范和推进省直管县改革的蓝图规划,政策文本的完善,亟待拓宽府际关系主体、关系内容,优化关系管理;而文本内容的未来设计,应在加强中央导引下,结合省域特色及地方治理趋势,注重府际治理并提供细化的配套支持。

The Province-govern-county Reform appears as an evolution of vertical hierarchy system in form, while, in factit is an adjustment as well as an optimization to intergovernmental relationships among the province, city and county. Basedon the perspective of intergovernmental relations and text analysis besides comparative analysis, after a comparative analy-sis of 129 policy texts concerning Province-govern-county Reform which were introduced by 22 provinces from 2002 to2016, we find that the policy texts are involved in fiscal relations, decentralization relations and public administration rela-tions in general, but there are a tendency of similarity and problems of lacking provincial characteristics, intergovernmentalmanagement as well as the concept of intergovernmental governance. As a blueprint to guide, standardize and propel the re-form, the policy text needs be improved. Therefore, policy makers should enrich subject and content of intergovernmental re-lations and optimize intergovernmental management urgently. At the same time, design of the future text should combinewith the provincial characteristics in the guidance of the central as well as the tendency of local governance, providing withdetailed complementary supports.