府际关系视角下的中国央地关系协调:价值意涵、演进思路与发展动向

Coordination of China’s Central-local Government Relations from the Perspective of Inter-Governmental Relations: Value Meaning, Evolution of Ideas and Development Trend

作为一种纵向间的府际关系,央地关系关涉国家统一与政治稳定,并在很大程度上影响着地方政府之间的关系。央地关系也是国家政治结构中的重要组成部分和关键影响因素,与政府运作过程中的诸多困点相互交织,贯穿于国家治理体系和治理能力现代化的整个进程。新中国成立以来,我国央地关系协调的基本态势可以划分为刚性集中阶段(1949年至1978年)、软性集中阶段(1978年至1994年)和韧性集中阶段(1994年至今),各阶段央地关系的协调都存在其优势与限度。进入新时代,我国央地关系的协调主要关注央地关系的分工与责任问题、央地之间的事权与财权分配问题、党和国家机构改革问题等方面。新时代央地关系的协调呈现出了从片面的“集权——分权”思路到合理的“确权——确责”思路的演进、“韧性集权——有效放权”相结合的特征日益凸显、“有序分工——合作治理”相协调的趋势逐步增强等发展动向。

As a vertical intergovernmental relationship, the central-local relationship is related to national unity and political stability, and to a large extent, it affects the relationship between local governments. The relationship between the central government and the local government is also an important component and a key influencing factor in the national political structure.It interweaves with many difficulties in the process of government operation and runs through the whole process of the modernization of the national governance system and governance capacity. Since the founding of new China, the basic situation of the coordination of central-local relations in China can be divided into the rigid concentration stage(1949—1978), the soft concentration stage(1978—1994) and the flexible concentration stage(1994 to the present). The coordination of central-local relations in each stage has its advantages and limitations. In the new era, the coordination of central-local relations in China mainly focuses on the division of labor and responsibilities of central-local relations, the distribution of administrative and financial rights between central and local governments, and the reform of the Party and state institutions.The coordination of central-local relations in the new era shows the evolution from the one-sided idea of “centralization and decentralization” to the rational idea of “confirmation of power and responsibility”, the increasingly prominent characteristics of the combination of “tenacious centralization and effective decentralization”, and the gradual enhancement of the coordination trend of “orderly division of labor and cooperative governance”.