基层政府编外人员规模膨胀的行为机制研究——基于浙江省S市的案例分析

The Behavior Mechanism of Expanded Off-Staffs in Grass-Roots Government——Based on the Case Study of S City in Zhejiang Province

政府机构的编制总量控制是深化政府机构改革的基本措施,但在基层衍生了一种非正式的用工模式——雇用编外人员,用工数量庞大且有逐步膨胀的趋势。以浙江省S市为研究对象,基于“政府官员—编外人员”的二元结构,构建编外人员“信念—期望—机会”的行为机制,从编外人员的观念形成机制、行为作用机制以及政府官员行为对编外人员观念的形塑机制等三个方面,研究基层政府编外人员数量膨胀的深层原因,发现指令式管理风格和单位自主性管理模式通过作用于编外人员的信念形成、期望实现、机会供给来影响编外人员的行为,使进入人数大于退出,编外人员数量膨胀。因此,需要从深化编制管理、转变管理风格、加强范围限制、细化使用程序和改善退出机制这五个方面规范基层编外人员管理。

The control of the total staffing of government institutions is a basic measure to deepen the reform of government institutions,but at the grass-roots level,the hiring of off-staffs as an informal mode of employment has been derived.The number of employees is huge and there is a tendency of gradual expansion.Taking S City in Zhejiang Province as the research object,based on the dual structure of“government officials—off-staffs”,this study constructs the behavior mechanism of“belief—expectation—opportunity”for off-staffs,and explained the underlying reasons for the expansion of the number of off-staffs in grass-roots government from the perspectives of the concept formation mechanism and behavior action mechanism of the off-staffs,as well as the shaping mechanism of the concepts of the off-staffs through the behaviors of governmental officials.This study found that directive management style and management mode in response to unit needs affect the behavior of off-staffs by acting on their belief formation,expectation realization and opportunity supply.The number of entrants is greater than that of exits,and the number of off-staffs expands.Finally,this paper standardizes the management from five aspects:deepening the establishment management,changing the management style,strengthening the scope limitation,refining the application procedure and improving the withdrawal mechanism.