一体抑或分立:市县关系的变迁动力、样态类型与优化进路

Integration or Separation: The Changing Dynamics, Types of Patterns, and Optimization Approaches of City-County Relation

市县关系是我国政府间关系的重要组成部分,也是地方政府治理与发展的重要因素。市县关系的样态直接决定了我国地方政府间关系的样态,也是地方政府治理现代化的影响因素。为了适应经济社会体制发展及社会主义市场经济体制的建设,市县关系在中央政策导向和地方治理现实的双重作用下发生了更为明显的变迁。时至今日,我国市县关系呈现为“市管县”为主,兼容多样化“省管县”的图景。但市县关系方面同时也在行政层级、发展均衡、权责模糊等方面出现问题。为有效解决相关问题,通过梳理既有的市县关系变迁历程,归纳出外部和内部两个方面的动力,并明确其对市县关系变迁与发展的现实作用。同时,根据变迁历程及其动力,形成“市县一体”和“市县分立”两种理论分野。基于此,从政府职责的视角出发,依托事务类别、管理模式和发展导向,尝试将市县关系构建为四种样态:完全一体型、有限一体型、完全分立型和有限分立型,进而得出“一体”与“分立”的融合是推进市县关系优化的主要方向。在确定方向下,以政府职责为推进优化的逻辑起点和目标导向,尝试建立“创新理念-构建体系-建立机制-推进协同”优化进路。

The relationship between cities and counties is an important component of the intergovernmental relationship in China,and it is also an important factor in the governance and development of local governments.The shape of the relationship between cities and counties directly determines the shape of the relationship between local governments in China,and is also a factor influencing the modernization of local government governance.In order to adapt to the development of the economic and social system and the construction of the socialist market economy system,the relationship between cities and counties has undergone more significant changes under the dual effects of central policy guidance and local governance reality.To this day,the relationship between cities and counties in China presents a landscape of“city governing counties”as the main approach,compatible with diversified“province governing counties”.However,there are also issues with the relationship between cities and counties in terms of administrative hierarchy,balanced development,and unclear powers and responsibilities.To effectively address relevant issues,by reviewing the evolution process of existing city-county relations,we summarize the external and internal driving forces,and clarify their practical roles in the transformation and development of city-county relations.At the same time,based on the process of change and its driving force,two theoretical divisions have been formed:“city-county integration”and“city-county separation”.Based on this,from the perspective of government responsibilities,relying on the types of affairs,management models,and development directions,we attempt to construct the relationship between cities and counties into four types:completely unified,limited unified,completely separated,and limited separated.We then conclude that the integration of“unity”and“separation”is the main direction for promoting the optimization of city-county relations.Under the determined direction,with government responsibilities as the logical starting point and goal orientation for promoting optimization,we attempt to establish an optimization approach of“innovative concept-construction system-establishment mechanism-promotion synergy”.