议事结构视角下的地方人大常委会行政化问题研究——基于S省市县两级人大的实证考察

On the Administrative Issues of Standing Committees of Local People’s Congresses from the Perspective of Deliberation Structure-An Empirical Investigation of the Municipal and County People’s Congresses in S Province

在当前我国地方人大常委会的实际运作中,行政管理制度主导了议事权的运作,形成了封闭式的等级化议事结构。议题来源单一,议程设置呈现层层下达与逐级汇报双向结合的特点。议事权以自上而下的方式推进,非机关的常委基本被排斥在外。这种行政化特征严重抑制了地方人大常委会的代议制功能,并形成了其制度变迁的路径依赖。只有改变人大常委会行政化的议事结构,重塑地方人大常委会的运作逻辑,才能充分发挥其代议机关的制度效能。

In the actual operation of the Standing Committee of the local people’s congress in China,the system of administrative management dominates the agenda-setting power,thus forming a closed hierarchical deliberation structure.The topics for discussion come from limited sources,and the agenda setting is characterized by the combination of two channels:top-down orders and bottom up reports.The deliberation power is implemented from top to bottom with the standing committees of non-governmental organs basically excluded.This administrative feature has dampened the representative function of the Standing Committees of the local people’s congresses,and the system reform depends on the change of impeding structure.In view of this,only by changing the administrative deliberation structure of the standing committees of the local people’s congresses and reshaping their operational logic,can the representative organs give full play to their institutional efficiency.