基层政府“编外扩张”何以治理:一个政府职责的视角——基于江苏省C镇的个案分析

How to Govern the Grassroots Government’s“Off-Staff Expansion”:From the Perspective of Governmental Responsibilities—A Case Study of C Town in Jiangsu Province

基层政府编外人员的扩张会引发基层治理中的各类问题。基层政府“编外扩张”的形式主要呈现为社会化用工规制下的“转移性”扩张、编外人员流动下的“储备性”扩张和治理权限不足下的“自主性”扩张。在政府职责的视角下,基层政府“编外扩张”的发生逻辑可被概括为职责过载、职责脱节和职责外溢。基于基层政府“编外扩张”的发生逻辑,应建构“厘定职责—依职定岗—循责定额—双规并行”的治理路径,并通过建立清晰规范的政府职责清单、划定编外人员的岗位范畴、动态化的编外人员额度核定、构建职责明确的编内编外规范化的双线管理模式等具体方式实现对“编外扩张”的治理。

The expansion of off-staff personnel can cause various problems in grassroots governance.Based on the analysis of real cases,the forms of“off-staff expansion”of grassroots governments are manifested as“transferring”expansion under the social employment regulation,“reserve”expansion under the flow of off-staff personnel,and“autonomous”expansion under insufficient governance authority.From the perspective of government responsibilities,the logic of the“off-staff expansion”of grassroots governments can be summarized as“overload”,“disconnection”,and“spillover”of responsibilities.Based on the logic of the occurrence of“off-staff expansion”in grassroots governments,a governance path of“defining responsibilities,determining positions according to duties,following responsibility quotas,and parallel dual regulations”is constructed.Specifically,the governance of“off-staff expansion”is achieved through establishing a clear and standardized list of government responsibilities,defining the scope of off-staff positions,dynamically determining the number of off-staff members,and constructing a standardized dual line management model with clear responsibilities for both internal and external staff members.