当代中国政府的双重角色:行政机关抑或执行机关?

Contemporary Chinese Government:Navigating the Dual Role as Administrative and Executive Agency

当代中国各级人民政府不仅是宪法框架下的国家行政机关,事实上也是中国共产党的执行机关,人民政府具有国家行政机关与党委执行机关的双重角色。行政机关与执行机关具有不同的制度逻辑,充分研究政府双重角色不同的制度逻辑有助于加深对当代中国政府与政治的理解。作为国家行政机关,人民政府强调依法行政和科层制管理,法先于高于行政,法定的职责体系是政府行政的依据;作为党委执行机关,人民政府则要围绕党委的决策开展工作,强调高效执行,有效落实,偏好运动式治理。由此塑造了当代中国各级人民政府“一府两角”的客观事实。政府的行政机关角色是现代国家体制中立法、行政、司法这一政治性分权逻辑下的组织形态;而政府的执行机关角色是中国特色广义政府体制决策、执行、监督这一功能性分权逻辑下的组织形态。在这双重逻辑下,有效的政府管理需要兼顾两个角色,既要依法行政、履行法定国家职责;也要有效执行、高效落实党委决策。但在现实地方政治实践中,存在顾此失彼的现象。一方面,一些地方人民政府过于强调自身行政机关角色,没有充分认识作为党委执行机关的角色,对党委决策的执行重视不够、执行不力。另一方面,一些地方党委过于将人民政府视为执行机关,没有充分认识人民政府作为国家机构重要组成部分所具有的法制逻辑,影响人民政府独立依法履行职责;也没有充分认识政府作为国家机关的科层制管理逻辑,过于强调政治目标合理性而忽视行政过程合法性,影响政府制度建设。

Contemporary Chinese local governments operate under a dual role:they function as state administrative agencies within the constitutional framework and as executive agencies of the Communist Party of China(CPC).These dual roles carry distinct institutional logics,with the state administrative aspect focusing on the rule of law and hierarchical management grounded in a statutory responsibility system,while the executive agency role prioritizes efficient execution and campaign-style governance,characteristic of the CPC's approach.The government's administrative capacity is shaped by the modern state's separation of pow-ers,dividing legislative,executive,and judicial responsibilities.Conversely,its role as an executive agency aligns with the Chi-nese governance model,which distinguishes decision-making,execution,and oversight functions.For effective governance,a balance must be struck between adhering to the law and executing Party committee decisions.However,challenges arise when lo-cal governments either overemphasize their administrative role,thereby undermining the Party's executive decisions,or when local Party committees overly stress the government's role as an executive agency,leading to a neglect of legal responsibilities and the undermining of the legitimacy of administrative processes.This imbalance can negatively impact the construction and function of government systems.