双层治理结构:地方治理中的统筹编制

Dual Governance Structure:Coordinating Staffing in Local Governance

机构编制作为地方治理中的特色组织制度,其正式编制人员与编外人员体现了独特的双层治理结构属性。已有研究大多聚焦于探讨编外用人的选择逻辑,忽视了正式编制人员与编外人员共存的功能作用。通过比较研究发现,由于治理任务的日益增多,刚性约束下的正式编制难以满足需求,地方政府则通过统筹使用各种编制人员,成功应对治理挑战。这种正式编制人员与编外人员共同构成的双层治理结构体现了正式制度与非正式制度的有机结合,并在地方政府同一层级内部、不同部门间和不同层级间呈现出差异性。这种差异性没有固定的模式且具有一定的弹性,有助于在地方各级政府编制受限的情况下有效完成治理任务。未来,编制改革应更加注重治理任务与治理资源的匹配性,以优化双层治理结构并提升治理效能。

The institutional staffing,as a distinctive organizational system in local governance,embodies a unique dual governance structure attribute through the inclusion of both formal and informal personnel.While most studies have focused on exploring the logic behind the employment of informal personnel,they have overlooked the functional role of the coexistence of formal and informal personnel.Through comparative the study reveals that,due to the increasing governance tasks and the rigid constraints on formal staffing,it is difficult to meet the demand solely with formal staff.Local governments have successfully addressed governance challenges by comprehensively utilizing various types of staff.The dual governance structure comprised of formal and informal personnel,reflects the organic integration of formal and informal systems and exhibits variability within the same level of local government,across different departments and different administrative levels.This kind of variability has no fixed pattern and possesses a certain degree of flexibility,which helps in effectively completing local gorvernments of all levels tasks under staffing constraints.In the future,staffing reforms should pay more attention to the matching between governance tasks and governance resources to optimize the dual governance structure and enhance governance effectiveness.