论文标题:论地方政府机构改革：难点、原因与对策
On the Reformation of Local Government"s Organization: The Difficulties, Reasons and Counter Measures for It
论文作者 陈社会
论文导师 尤光付,论文学位 硕士,论文专业 行政管理
论文单位 华中师范大学,点击次数 58,论文页数 42页File Size2078k
2004-05-01论文网 http://www.lw23.com/lunwen_110427402/ 地方政府;机构改革;对策
Local government;Reform of government"s organization;Research
改革开放以来，各级地方政府虽然于1982年、1988年、1993年、1998年进行了四次规模较大的改革，特别是1993年和1998年的机构改革，在转换职能上做了很大的努力，但由于历史条件的制约和宏观环境的限制，还不能完全摆脱“精简-膨胀-再精简-再膨胀”的怪圈。根本症结就在于，没有把转变职能作为中心环节予以落实。政府包揽社会、企业、市场、个人事务的弊端仍没有从根本上得到改变，这种状况已经成为社会主义市场经济进一步发展的严重障碍。所以，改革的核心在于政府职能的转变，不解决这个核心问题，机构精简就难以落到实处。在地方政府机构改革中，必须严格按照中央要求，把精兵简政作为一项硬任务，将该撤的机构撤下来，该并的机构并起来，该裁的冗员裁下来，决不能有任何的犹豫和动摇。但不能把精简同改革等同起来，改革的关键在于转变政府职能，只有在转变职能的基础上进行精简，机构改革的目标才能顺利实现，机构精简的成果才能得以巩固。要进一步认识到，政府机构改革最深层的原因或最根本的动力来自于正在发展着的社会主义市场经济，政府的角色定位与职能转换必须与社会主义市场经济的要求相适应，而不是与之相背离。我们的行政管理体系是在计划经济下形成和发展的，长期以来，政府包揽了许多管不了，也管不好的事务，成了无所不管、无所不能的“全能政府”，政企不分、政事不分、政社不分的现象十分严重，不仅影响了党和群众的关系，使国家财政不堪重负，而且直接阻碍改革的深入和经济的发展，严重影响着社会主义市场经济体系的建立和完善。 然而，转变政府职能并不一定导致人员精干，而只是提供了可能性。许多西方国家的政府职能虽然早已适应了市场经济的要求，但仍然存在着机构庞杂的弊端，便是明证。因此，决不能只转变职能，不分流人员。人员分流是地方政府机构改革的难点，这一点己形成共识。反之，人员分流也不一定必须引致职能转变。如果控制不力，人员精干的政府也可能重操旧业，甚至有意“揽权”、“设租”。因此机构改革中的“核心”和“难点”必须良性互动，同时运用法治等其它手段。⑧默氯 本文共分为三个部分。第一部分对地方政府机构改革的相关理论进行了阐释，第二部分分析了地方政府机构改革的现状。第三部分提出了地方政府机构改革的目标取向与对策。 本文的创新之处主要有两点:一是在现有成果的基础重新界定了地方政府机构改革的目标价值取向。二是结合地方政府工作实践，通过对经济发达地区和经济落后地区的地方政府机构改革进行比较，从实证角度，揭示了导致地方政府职能转变和人员分流问题难以根本解决的原因，并提出了解决地方政府机构改革中的核心与难点问题的对策。
Since we implement the policy of reform and opening up, being hampered by historical condition and micro-environment, every level of local governments hasn"t extricated itself from the circle of "reduction-expansion- reduction-expansion", although after four tunes of great reform in 1982,1988, 1993 and 1998,especially in the later two years, we have made great efforts to change the government"s function. The reason for it lies in the fact that we haven"t regarded the change of the government"s function as the key to the reform, and carried out this change. We haven"t solved the problem that government undertake the whole thing for the society, enterprise, market and the citizen, and this problem has become the obstacle to the further progress of the socialist market economy. Therefore, the key to reform is to change the government"s function, or we couldn"t make any progress in reform.In the local reform in government organization, must rigorously, enforce according to central authorities" demand , regard reducing the staff as a indispensable and demanding task, the organization that should dismiss from dismisses from, the organization that should combine and standing up combines, the supernumerary that should be judged will be judged , there must not be any hesitation and wavering. But can"t stand up simplifying with the reform equally , the key to the reform lies in changing government"s function, simplifying only on the basis of changing the function, the goal of administrative structure reform could be realized smoothly, the achievement that the organization simplifies can be consolidated. Realize further , the reason or the most basic motive force deepest in reform in government organization come from the socialist market economy of developing, the government"s role makes a reservation to change and must suit with the demand for socialist market economy with the function, but not deviate from it. Our administration system is taken shape and developed under planned economy,for a long time, the government has taken on no matter, is in charge of the affairsnot good either, becomes an omnipotent one--" it is all-round for government".It divides into indistinction between the functions of the government and those of enterprises, government affairs. The phenomena where the societies does not divides is the getting more serious, which not merely influenced the relation between party and the masses , made the state finance can"t bear the heavy load, hampered deepening and economy of the reform"s progress directly, and influenced the setting-up and perfection of the economic system of socialist market seriously.However, the change of government"s function, which only offers an possibility for the reduction of stuff, doesn"t certainly lead to the reduction of stuff. Take the western counties for example, their government also have numerous and jumbled framework, although they have changed government"s function for the demand of the market economy. Thus, we shouldn"t only change government"s function without the reduction of stuff, which is considered as a difficult problem in the course of reform. On the other hand, the reduction of stuff doesn"t certainly lead to the change of government"s function, because the government will expand intentionally for "power" and "rent" . So, we should changed government"s function and the reduction of stuff in the same time.This paper can be divided four parts. The first part tries to expounds some of theories of the reform of the government"s organization. The second part analyses the current situation of the reform of the government"s organization. The third partputs forward the counter measures for these problems.In this paper, there are two innovatory points: firstly, the author defines the aim for the reform of the government"s organization. Secondly, with the comparison of the reform in advanced region and the lagged region, the author analyses the most important and difficult problem and puts forward the reasons the counter measures for these probl
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