从“多重融合”到“减少共同”:中国政府间纵向职责配置调整的一个重要方面

From“Multiple Integration”to“Reduced Commonality”:An Important Aspect of Adjustment of Inter⁃governmental Vertical Responsibility Allocation in China

中国各级政府之间存在大量的共同事权。通过对法律法规的梳理和对地方财政支出状况的考察发现,相邻两级以上的政府之间存在较为复杂多样的共同事权划分形态,其在层级间的分布呈现“多重融合”的特点。共同事权的广泛存在,与职责同构模式、授权体制、条块结构和基层政治观有关,也受到各种历史因素的影响,是国家治理传统和经济社会发展的阶段性产物。于政府统一的管理结构和既有的治理需求而言,设置一定量的共同事权对保证政策的一致性、平衡区域发展差距、提升政府全面履责能力都是有益处的。但是,共同事权过多也会降低履责效率和灵活性,产生职责倒挂、事权溢出,并会造成不必要的资源浪费。为进一步提升国家治理水平,有必要从转变传统认知入手,以政府职能为基础,尽可能减少和规范共同事权,逐步做到使事权分布“错落有致”,进而优化政府职责体系,促进政府高效协同履责。

There is a mass of common administrative powers among governments at all levels in China.Through the a⁃nalysis of laws and regulations and the investigation of local fiscal expenditures,it is found that there are complex and di⁃verse forms of division of common administrative powers between governments above two adjacent levels,and the distribu⁃tion among levels presents the characteristics of“multiple interfusion”.The widespread existence of common administrative powers is related to China's special isomorphic governmental responsibility system,authorization system,subdivision struc⁃ture and grassroots political views,and is also affected by various historical factors.In terms of the unified governmental management system and current governance needs,it is obviously necessary to set up a certain amount of common adminis⁃trative power within a certain range.This helps to ensure policy consistency,balance regional development disparities,and enhance the government's capacity to fully implement its responsibilities.However,too many common administrative powers will also reduce the efficiency and flexibility of responsibility implementation,resulting in inverted responsibilities,overflow of responsibility and unnecessary waste of resources.It is necessary to start from changing the traditional cognition,reduce and standardize the common administrative powers as much as possible,and gradually achieve the distribution of the powers with“well⁃arranged”features,so as to optimize the governmental responsibility system,and promote efficient and collabo⁃rative fulfillment of governmental responsibilities.