编制管理软约束抑或体制灵活性:基于四个城市辅警扩张的实证研究

Soft Constraints or Institutional Flexibility on Staff Quotas: An Empirical Study Based on Four Cities' Auxiliary Police

编制管理事关党和国家治国理政战略资源的配置,政府对稀缺的编制从严控制。然而,各级政府和部门直接或间接雇用了规模庞大的编外人员。编外人员扩张是编制管理制度被"绕过"的结果还是体制灵活性的体现,尚缺乏确切的"答案"。四个城市辅警"增长的故事"和田野调查表明:公安编制获得了倾斜性增长,但是被严格控制;地方自定编制被核准和清理;辅警等编外人员扩张是经济社会事务发展需要与编制紧缺矛盾的务实性选择;辅警存在核心业务岗位限制、编内编外比例限定、地方财政能力约束等灵活性和规范性机制。编制的精简控制与编外人员的差异性增长是中国政府治理灵活性和适应能力的体现。随着深化党和国家机构改革的推进以及编制资源的跨地区跨部门动态配置,利用财政预算限制编外人员总量,以及以"机器换人"来适度替代编外人员成为编制管理改革的重要选项。

The staff quotas are related to the allocation of the strategic resources of the party-state, thus the central government maintains strict control on these.However, all levels of governments and departments have employed large-scale shadow employees.The expansion of shadow employees is the staff quotas institutional ineffective or institutional flexibility without an exact answer.The field works of four cities auxiliary police show that the police forces and staff quotas have been strictly controlled and the expansion of shadow employees such as the auxiliary police is a pragmatic choice.There are inner control mechanisms conclude limitation of core positions, control of ratio of shadow employees, and constraints of local fiscal capacity.To some extent, the shadow employees reflected the flexibility of the local governments.With the development of administrative reforms, cross-regional or cross-sector dynamic allocation of staff quotas, the control of shadow employees by fiscal budgets, and replacement of shadow employees by technology are alternative options.