部门工作“中心化”:县域条块关系的重组及其治理后果

Centralization of Department Work:The Change and Consequence of the Tiao-Kuai Relationship

基层治理转型存在诸多困境,县域条块关系是解释这一问题的重要叙事框架。在县域治理实践中,县级政府能够有效发挥统筹领导权,合理协调县职部门与乡镇政府的权力关系,以应对复杂多元的治理任务。然而,伴随着部门工作“中心化”机制的扩张,县职部门得以撬动“块块”的统筹领导权,强化对乡镇政府的支配,重组县域的条块关系。在新的条块权力关系中,县职部门的自利性持续扩张,不断弱化县级政府设置治理秩序、协调条块关系的自主性,并引发县域治理体系的肿胀与权责失衡,损害了基层的基础治理能力。部门工作“中心化”是央地关系调整下,上级政府过度使用政治化机制引发县域治理陷入“强统筹—弱自主”困境的产物。县域条块关系的理顺需要强化各级政府的常规治理能力,维护县级政府的统筹领导权,建立合理的条块边界与联动机制,进而提升县域治理效能。

The tiao-kuai relationship is an important narrative framework for explaining the dilemma of grassroots governance.In governance practice,county Party committees and governments can exercise overall leadership and coordinate the relationship between county departments and township governments to cope with the complex and diversified governance tasks in counties.However,with the expansion of the"centralization"of department work,county departments have been able to leverage the overall leadership,strengthening the control of townships and restructuring the relationship between the blocks in the county.In the new power relationship,the independence of county departments continues to expand,which greatly damages the capacity for county governance.The"centralization"of departmental work is the product of the excessive use of politicized mechanisms by the superior government.Straightening out the tiao-kuai relationship needs to maintain the overall leadership of the county Party committee and government,and establish a reasonable block boundary and linkage mechanism,while giving play to the governance advantages of county departments and towns,so as to achieve the goal of consolidating the county governance system and governance efficiency.