地方政府编外用人的历史逻辑与现实优化

The Historical Logic and Realistic Optimization of Non-staff Employment of Local Governments

随着社会治理重心不断下移,地方政府职责范围不断扩大,“职责—编制”矛盾日益突出。这种情况下,地方政府普遍采用编外用人的行动策略来充实基层治理力量,保障地方干事创业的资源需求,以实现良好的社会治理效果。这使得编外人员成为了政府管理中不可忽视的重要人力资源。但是,编外用人并非当代中国政府过程的产物,其生成和发展具有深厚的历史依据。通过梳理我国地方政府编外用人的历史演变过程,发现政府编外用人行动经历了中国古代胥吏制度、近现代临时工制度、计划外用工、劳务派遣等发展阶段。尽管所处历史方位、经济水平、政治制度、文化环境等都有所差异,但政府编外用人在招录方式、角色定位、薪酬待遇、身份转换与晋升通道等方面存在较强的延续性或相似性。这种延续性相似性生发于中央一统与地方自主始终共存、正式与非正式并行不悖,并受到东方思维中“二元合一”的逻辑惯性深刻影响。新时代优化地方政府编外用人需要坚持差异化、法治化和专业化原则,重点优化编外人员培训开发、薪酬保障和组织激励机制。

As the focus of social governance continues to shift,the scope of responsibilities of local governments continues to expand,and the contradiction between“responsibility and establishment”is becoming increasingly prominent.Under such circumstances,the local government generally adopts the action strategy of non-staff employment to enrich the grass-roots governance force and ensure the resource needs of local governance,so as to achieve good social governance effects.Non-staff personnel have become an important group in the local government management.But the phenomenon of non-staff employment is not a product of modern government development,its generation and development has profound historical basis.Looking back at the historical evolution of non-staff employment of local government from a historical perspective,it is found that non-staff employment in our country has experienced the development of the system of“Xuli”in ancient China,the system of temporary workers in modern times,the planning of external workers,labor dispatch and so on.Although the historical position,economic level,political system,cultural environment and so on are different,the action of non-staff employment has continuity or similarity in recruitment methods,role positioning,salary treatment,identity transformation and promotion channels.This kind of continuity or similarity is born of the coexistence of central unity and local autonomy,the coexistence of formal and informal,and is deeply influenced by the logic inertia of“unity of opposites”in eastern thinking.So to optimize the management of non-staff employment of local government in the new era,it is necessary to adhere to the principles of differentiation,legalization and specialization,and focus on optimizing the training and development mechanism,salary guarantee mechanism and organizational incentive mechanism of non-staff personnel.