论央地关系的实践性平衡——结合两项土地制度的分析

Practical Balance in the Relationship between Central and Local Governments:An Analysis with Special Reference to Land Management Practice

央地关系是政治学研究的基本问题。实践中的央地关系既存在“一放就乱、一收就死”的非理想状态,也存在“乱了就收、死了就放”的纠偏机制,中央与地方通过权力的动态调整而达到实践性平衡状态。中央对地方放权是为了促使治理目标更好地实现,保持政治统一是放权的底线,政治统摄行政是维系央地关系运转的轴心。合理有序的央地关系既不是单向度的权力下放,也不是单向度的权力上收,而是部分权力下放与部分权力上收同时发生的双向过程。本文结合两项土地制度实践展开论述。土地管理作为国家合法权力的行使,包含了中央政府、地方政府与农民三层关系。土地征收与城乡建设用地“增减挂钩”两项制度实践显示,确保国家与农民关系平衡是实现央地关系平衡的前提条件之一;保护农民权利和增进群众利益是锚定央地关系的重要基石。

The relationship between the central and the local governments is a basic issue in the study of political science.In practice,we often see things easily gotten out of control when the central government loosens its grip on the local governments,and a state of lifelessness when the central government tightens its grip.To remedy it,the central government would tighten up when things are getting out of control or loosen up when things need to be revitalized.In this way,the central and the local governments have achieved a state of practical balance through the dynamic adjustment of power.The purpose of the central government’s power decentralization is to facilitate and promote local governance,with political unity as the bottom line and the dominance of politics over administration as the axis.A reasonable and orderly relationship between the central and the local governments is neither a one-way power decentralization nor a one-way power centralization,but a two-way process in which decentralization and centralization occur at the same time.This paper expounds on two land expropriation cases.In land management,which is the exercise of the legitimate power of the state,there involves a threelevel relationship among the central government,the local government,and the farmers.The two institutional practices which link the amount of land expropriation with that of urban and rural construction land shows that ensuring the balance of the relationship between the state and the farmers is one of the preconditions for achieving the balance between the central and local governments;Protecting the rights of the farmers and promoting the interests of the masses are important anchors for stabilizing the relationship between the central and the local governments.